Title:
title
Village on the Green Small Scale Future Land Use Map Amendment and PD Major Amendment - Consider a Small Scale Future Land Use Map Amendment from High Density Residential and Planned Development to Planned Development and a Rezone from R-3 (Multiple Family Dwelling) and PD (Planned Development) to PD (Planned Development), for the addition of 6.83 acres, forty (40) residential units, an amenities building and two (2) sport courts to the existing Village on the Green Planned Development for a total of approximately 82.78 acres, located on the south side of Sabal Palm Drive, approximately 1,000 feet east of Wekiva Springs Road; (Z2025-03/02.25SS.02) (Brooks Stickler, Kimley Horn and Associates, Applicant) District3 - Constantine (Annie Sillaway, Principal Planner).
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Agenda Category:
Public Hearing Items
Department/Division:
division
Development Services
body
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 High Density Residential and Planned Development to Planned Development, and a Rezone from R-3 (Multiple Family Dwelling) and PD (Planned Development) to PD (Planned Development) for the addition of 6.83 acres to be incorporated into the Village on the Green PD. The Applicant proposes an addition of forty (40) independent living dwelling units, both duplex and single-family units, a 5,500 square foot amenities building, and two (2) sport courts.
The subject site was approved as part of the Sabal Point PD in 1979 with entitlements for single family residential, multi-family, a golf course, and office and commercial uses on 3,050 acres.
In 2018, the Board of County Commissioners approved a PD Major Amendment Rezone on 75.76 acres of the Sabal Point PD, now known as the Village on the green PD; with entitlements for a continuum of care facility of 144 beds providing skilled nursing care for assisted living and memory care, along with 514 independent living units for residents fifty-five (55) years and older, with a maximum density of 10.78 dwelling units per net buildable acre, and a maximum 138,100 square feet for the health care facility and a 35,076 square foot clubhouse.
The Applicant is proposing to incorporate an additional 6.83 acres, designated as POD E from the remaining Sabal Point PD into the Village on the Green PD for the addition of forty (40) independent living dwelling units, comprising of both duplex and single-family units. The existing Village on the Green proposes to add a 5,500 square foot amenities building, and two (2) sports courts within the southern portion of POD B2. The overall development will maintain a maximum density of 7.09 dwelling units per net buildable acre and a maximum Floor Area Ratio (F.A.R.) to 0.60.
The Future Land Use and zoning designations of the surrounding area are as follows:
East: Future Land Use: High Density Future Land Use and Planned Development
Zoning: R-3 (Multiple Family Dwelling - Crown Point by the Springs Condos), Planned Development (Fairway Villas), Planned Development (The Springs - Deerwood Estates), Planned Development (The Springs - The Live Oak Village)
West: Future Land Use: Planned Development - Sabal Point
Zoning: PD (Planned Development) - Sabal Point (permitting Office and C-1 (Retail Commercial)
North: Future Land Use: Planned Development
Zoning: PD (Planned Development) - Sabal Point
South: Wekiva Springs Road
Site Analysis
Floodplain Impacts:
Based on FIRM map with an effective date of 2007, there appears to be approximately 4.80 acres of floodplains on the existing Village on the Green subject property; however, the newly incorporated 6.83 acre parcel referred to as POD E does not contain any floodplain.
Wetland Impacts:
Based on preliminary aerial photo and County wetland map analysis, there does not appear to be any wetlands on the existing Village on the Green or the newly incorporated 6.83 acre parcel referred to as POD E.
Endangered and Threatened Wildlife:
Based on a preliminary analysis, there may be endangered and threatened wildlife on the southern portion of POD B2 located on the existing Village on the Green site. A listed species survey may be required prior to final engineering approval.
Utilities:
The site is located in the Sunshine utility service area and will be required to connect to public utilities. Water and sewer capacity is available to serve the proposed development.
Transportation/Traffic:
The development proposes a new access point onto Wekiva Springs Road from the newly incorporated 6.83 acre parcel referred to as POD E, while maintaining access via Sabal Palm Drive. Sabal Palm Drive is classified as an Urban Minor Arterial and Local roadway. Wekiva Springs Road is currently operating at a level of service (LOS) “C.” Minor roadway and safety improvements are planned between Sabal Palm Drive and Fox Valley Drive, including the addition of a westbound right-turn lane at the Sabal Point Elementary School entrance. These improvements are included in the County’s five-year Capital Improvement Program. The design phase has been completed, and the project was advertised for construction on May 21, 2025.
The subject site is on Wekiva Springs Road and on a curve and there are discussions of a gate into the site. The County Engineer has concerns with access to the site at this location and concerns with possible queueing out onto Wekiva Springs Road. Based on these traffic safety concerns, a right-turn lane or other entrance requirements may be required at Final Engineering.
Sidewalks:
There is not an existing sidewalk along Wekiva Springs Road. The Developer will be required to construct a six (6) foot wide sidewalk along Wekiva Springs Road. Additional right-of-way (ROW) may be required to facilitate these and other possible roadway improvements.
Drainage:
The proposed project is located within the Little Wekiva Drainage Basin. A portion of the site has a Master Drainage Basin system. Due to the basin having a limited downstream capacity, the site will have to be designed to hold water quality and the pre vs post volumetric difference for the twenty-five (25) year, twenty-four (24) hour storm event.
Buffers:
The Master Development Plan illustrates a fifteen (15) foot wide landscape buffer along the south and southeast perimeter, and a ten (10) foot wide landscape buffer is proposed along the west boundary of the newly incorporated 6.83 acre parcel referred to as POD E. The amenity area, encompassing the amenities building and sport courts, shall maintain the previously approved ten (10) foot wide buffer along its southern boundary of POD B2.
Open Space:
A minimum of twenty-five (25) percent open space is provided in compliance with Seminole County Land Development Code (SCLDC) Sec. 30.1.4.2.2.
Public School Capacity Determination:
Per Policy PSF (Public School Facility) 4.3, any age restricted community with no permanent residents under the age of 18 is exempt from school concurrency.
Consistency with the Land Development Code
The Intent and purpose of the PD (Planned Development) zoning district is to promote flexibility and innovation to meet the needs of County residents and businesses by facilitating innovative design solutions and development plans, that may be difficult to achieve under conventional zoning regulations. Planned developments shall promote flexibility and creativity in addressing changing social, economic and market conditions, especially where they are used to implement adopted policies of the Comprehensive Plan.
The proposed PD zoning designation and the associated Master Development Plan have been evaluated for compliance with the Seminole County Land Development Code (SCLDC) review criteria for Planned Developments as follows:
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 Analysis:
The requested Small Scale Future Land Use Map Amendment and PD Major Amendment Rezone for the addition of forty (40) independent living units, is consistent with the Seminole County Comprehensive Plan. The evidence of consistency with the Future Land Use Element, is as follows:
Per Objective FLU 4.4 (A) Purpose and Intent, the proposed development supports flexibility and master planning inherent in Planned Development designations.
Per Policy FLU 4.4 (B) Uses, does permit a range of unit types and densities, which is provided in POD E by providing single family dwelling units and duplex units.
Per Policy FLU 2.5.1 (B) Efficient Land Use Patterns, states encouraging redevelopment of vacant or underutilized sites in the central areas of the County. The proposed redevelopment of a previous office building and parking areas and integrating POD E into the existing Village on the Green PD, demonstrates efficient land utilization and infill development and how it meets the current Future Land Use policies.
(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
Staff Analysis:
The proposed development incorporates Crime Prevention Through Environmental Design (CPTED): The Developer proposes to install a secure perimeter fence with adequate landscape buffers between adjacent land uses that differ in density. This includes a fenced site with controlled single-point gate access, restricting entry and egress exclusively to residents and their authorized guests and providing a ten (10) foot wide buffer along the west between the adjacent commercial parcel and POD E and a fifteen (15) foot wide buffer along the east adjacent to the existing Crown Point Springs Condos. This design minimizes unauthorized access, thereby reducing opportunities for external criminal activity and enhancing overall site safety.
The reduction in vehicle miles traveled per household: The proposed development is situated within the designated Urban Centers and Corridors Overlay. By expanding housing opportunities (including a range of housing types for senior citizens) and providing convenient access to on-site amenities (amenities building, sport courts), as well as leveraging existing pedestrian infrastructure to nearby retail and grocery stores, the project is anticipated to reduce household vehicle miles traveled. The provision for golf cart usage within the Village on the Green further supports reduced vehicular dependence on internal and proximate trips.
(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.
(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 Analysis:
The proposed development will optimize land utilization compared to the existing office development, while significantly enhancing on site tree canopy in compliance with the Seminole County Land Development Code. Approximately ninety (90) percent of the existing tree canopy within the northeast section of the development will be preserved, in addition to the majority of trees located along the perimeter of the development. Furthermore, the redevelopment plan incorporates the planting of new trees along internal roadways, featuring native canopy and understory species selected from the approved species list stipulated within the Seminole County Land Development Code.
The development will feature internal pedestrian infrastructure. This includes sidewalks, walking trails, and dedicated golf cart access points, ensuring seamless multimodal connectivity throughout the entire Village on the Green community. The proposed development will also bridge the gap in pedestrian access from the Village on the Green community to Wekiva Springs Road through sidewalk access.
(d) The PD application shall include a narrative addressing the following:
(1) How the proposed development addresses the goals of the
Comprehensive Plan.
(2) Why the proposed development cannot be achieved under an existing conventional or special zoning district.
(3) How the proposed development provides an innovative approach to land development.
(4) A description of benefits to the County that cannot be achieved
under the existing provisions of this Code.
Staff Analysis:
The Applicant has demonstrated compliance with SCLDC Sec. 30.8.5.3 (d) - Review Criteria.
The Applicant is meeting subsections (e) through (g), including the Residential PD Design Standards, Residential Neighborhood Improvements, and Common Usable Open Space requirements, as demonstrated in the Architectural Rendering included in the agenda package.
Consistency with the Comprehensive Plan
The purpose and intent of the Planned Development land use designation is to implement innovative arrangements of land development features that are not possible with the use of standard land use designations and zoning districts. The Planned Development future land use designation shall promote flexibility and creativity in the development design, especially where needed to implement adopted policies of the Comprehensive Plan. It may also be used to promote affordable/workforce housing, pedestrian-oriented development, and protection of natural resources such as wetlands, lakes, and other natural amenities.
Under Policy FLU 2.9 Determination of Compatibility in the Planned Development Zoning Classification, the County is required to 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.
The proposed PD (Planned Development) zoning classification and associated Master Development Plan and Development Order addresses compatibility with the existing surrounding development. The proposed PD defines the specific use and hours of operation for the site; establishes a maximum building square footage and maximum number of dwelling units; a maximum building height; and provides adequate buffering for compatibility with the adjacent neighbors.
Per the Seminole County Comprehensive Plan FLU Objective 1.6 Standards of Review - Category 1, Land Use Amendments are evaluated utilizing the following criteria and are addressed as follows:
A. Whether the charter of the surrounding area has changed enough to warrant a different land use designation being assigned to the property.
Staff Analysis:
The proposed development provides strategic infill redevelopment of underutilized land for example, instead of contributing to outward sprawl, the development proposes the conversion of an existing commercial parcel (previously a call center with extensive impervious surface) into a residential use, which will connect to existing infrastructure, revitalizes developed areas and provides more permeable surface with the new residential development. By expanding the existing “Village on the Green PD” rather than creating a disconnected, standalone development, the integrated portion to be incorporated into the existing Village on the Green development demonstrates an innovative approach to growth management, by providing additional independent senior living to a community that already offers various levels of senior care, by supporting a continuum of aging in place. The proposed development of “independent living for seniors” allows for “aging in place” within a familiar community. Following the changes brought on by COVID, the demand for office space in the surrounding area has declined, leading to a shift toward providing more affordable housing for the aging community.
B. Whether public facilities and services will be available concurrent with the impacts of development at adopted levels of service.
Staff Analysis
Public facilities such as water and sewer are already existing and provided by Sunshine Water, which has reserved capacity for the parcel that will be incorporated into the existing Village on the Green. The newly incorporated parcel POD E is proposing new access onto Wekiva Springs Road, while maintaining the existing Village on Green access via Sabal Palm Drive. Sabal Palm Drive is classified as an Urban Minor Arterial and Local roadway. Wekiva Springs Road is currently operating at a level of service (LOS) “C”. The current 67,125 square foot office building estimated 119 AM peak hour trips and 119 PM peak trips, while the proposed forty (40) single family and duplex units anticipate approximately fifteen (15) AM peak hour trips and twenty (20) PM peak trips. The proposed redevelopment of POD E is anticipated to result in a net decrease in trip generation in comparison to the existing office building.
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 Analysis
The subject site, that includes POD E and the southern portion of POD B2 located in the existing Village on the Green, is suitable for the intended use. These areas do not contain any wetlands or floodplains and therefore, are not subject to floodplain or wetland regulations. However, based on the County maps, there may be karst features present on the property which will require a minimum twenty-five (25) foot, average fifty (50) foot natural undisturbed buffer within the developed site adjacent to karst features and shall be placed in a conservation easement.
D. Whether the proposal adheres to other special provisions of law (e.g., the Wekiva River Protection Act).
Staff Analysis:
The existing Village on the Green and the newly incorporated POD E are located within the Wekiva Study Area and the High Aquifer Recharge Area and is compatible with the Wekiva Study Area in that it limits density and complies with the standards set forth in the Wekiva Study Area, Chapter 369, Part III of the Florida Statutes.
The Developer must comply with the Environmental Design Standards outlined in Division 3 of the Wekiva Study Area regulations and Sec. 30.10.1 of the Seminole County Land Development Code. These standards are required to be demonstrated at the time of Final Engineering.
The subject site is located in a high recharge area. Per Policy FLU 2.3.12, the Developer must demonstrate at the time of Final Engineering that the impervious surface area does not exceed sixty (60) percent for any future development.
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 Analysis
The proposed development seeks a Future Land Use amendment from High Density Residential to Planned Development, creating a balanced buffer between the existing adjacent office building and the medium-density residential neighborhoods. This amendment allows the development to enhance compatibility by incorporating increased setbacks, landscaping, open space, and thoughtful building orientation. These design features reduce potential impacts and facilitate a smooth transition between different land uses, minimizing conflicts related to density, traffic, and aesthetics.
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.
Staff Analysis:
The site is part of the existing Sabal Point Planned Development and has a Future Land Use designation of Planned Development. Existing facilities including water and sewer infrastructure are already in place. Any future improvements associated with the development of the site are not expected to exceed the minimum requirements for infrastructure.
(2) Dedications or contributions in excess of Land Development Code requirements.
Staff Analysis:
The site is on Wekiva Springs Road and on a curve and there are discussions of a gate into the site. The County Engineer has concerns with access to the site at this location and concerns with possible queueing out onto Wekiva Springs Road. Based on these traffic safety concerns, a right-turn lane or other entrance requirements may be required at Final Engineering.
(3) A range of attainable housing opportunities and choices, including affordable or workforce housing.
Staff Analysis:
Not applicable
(4) Economic development (enabling higher paying jobs).
Staff Analysis:
Not applicable
(5) Reduction in transportation impacts on area-wide roads.
Staff Analysis:
The current 67,125 square foot office building estimated 119 AM peak hour trips and 119 PM peak trips, while the proposed forty (40) single family and duplex units anticipate approximately fifteen (15) AM peak hour trips and twenty (20) PM peak trips. The proposed redevelopment of POD E is anticipated to result in a net decrease in trip generation in comparison to the existing office building.
(6) Mass transit and a variety of transportation choices.
Staff Analysis:
Not Applicable
(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 Analysis:
Policy FLU 5.4 Enhancement of Residential Neighborhoods - The proposed project supports this policy by increasing the housing supply through the redevelopment of an underutilized office site along the SR 434 corridor. By repurposing underutilized land with thoughtful design and modern standards, this development supports the Central Florida Regional Growth Vision. It also provides adequate buffering between the existing commercial uses to the west and residential neighborhoods to the east. The current site is primarily covered with impervious surfaces; redevelopment of residential units will provide more native vegetation, trees, and pervious areas, by enhancing the site's environmental quality.
Policy FLU 2.5.1 Efficient Land Use Patterns. The development of forty (40) residential units which minimize urban sprawl by converting an underutilized office land use into a less intensive use that will protect natural resources and is using the existing infrastructure on site.
Staff finds the proposed Planned Development Future Land Use designation and PD (Planned Development) Zoning classification to be consistent with the Comprehensive Plan.
In compliance with Seminole County Land Development Code Sec. 30.49 - Community Meeting Procedure, the Applicant conducted a community meeting on May 8, 2025; details of the community meeting have been provided in the agenda package.
Requested Action:
Staff requests the Planning and Zoning Commission recommend the Board of County Commissioners adopt the proposed Small Scale Future Land Use Map Amendment and concurrent Rezone as 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 adopt the requested Small Scale Future Land Use Map Amendment from High Density Residential to Planned Development; and
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 adopt the requested Rezone from R-3 (Multiple Family Dwelling) to PD (Planned Development), and approve the associated Development Order and Master Development Plan.