Title:
title
Request for Continuance to the April 1, 2026 P&Z meeting
Sandy Lane Homes Rezone - Consider a Rezone from A-1 (Agriculture) and R-1AA (Single-Family Dwelling) to MM (Missing Middle) for a proposed single family residential development of twenty-four (24) lots on approximately 7.54 acres located on the west side of Sandy Ln, south of Sand Lake Rd; (Z2025-014) (Giovanni Jordan, Jordan Homes, Applicant) District 3 - Constantine (Kaitlyn Apgar, Senior Planner)
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Agenda Category:
Public Hearing Items
Department/Division:
division
Development Services
body
Authorized By:
Mike Rhodes, Interim Development Services Director
Contact/Phone Number:
Kaitlyn Apgar/ 407-665-7377
Background:
The Applicant is requesting a Rezone from A-1 (Agriculture) and R-1AA (Single Family Dwelling) to MM (Missing Middle) to develop the subject property as a single-family residential subdivision with a density of 3.88 dwelling units per net buildable acre for a maximum of twenty-four (24) residential lots. The applicant is proposing fifty-seven (57) foot wide lots with a minimum lot size of 6,500 square feet.
The subject property has a Low Density Residential Future Land Use designation, which allows a maximum density of four (4) dwelling units per net buildable acre. The intent of the Low Density Residential land use designation is to provide appropriate locations for standard detached single family residences.
The intent of the requested zoning district of MM (Missing Middle) is to encourage a wider range of housing choices in central locations accessible to commercial services and infrastructure. This includes permitting smaller units and more compact plans to increase affordability without subsidies. The MM zoning district allows for different housing typologies, including various multi-family housing unit options and the requested small lot single-family residential unit typology. Per Seminole County Land Development Code (SCLDC) Sec. 30.8.3.2 (a), the small lot single family typology consists of single family detached homes on small sized lots designed to increase yield of lots. The Missing Middle zoning district does not specify required minimum lot size or width requirements as other standard zoning districts do. The proposed number of lots are required to remain consistent with the overall density of the existing Low Density Residential Future Land Use, which allows up to four (4) dwelling units per net buildable acre.
The Future Land Use and zoning designations of the surrounding area are as follows:
East: Sandy Lane
Future Land Use: Low Density Residential
Zoning: A-1 (Agriculture) with a minimum lot size of one (1) acre.
West: Future Land Use: Planned Development
Zoning: (Foxwood) Residential Planned Development with a maximum density of 3.13 dwelling units per acre with a minimum lot size of 7,500 square feet.
North: Sand Lake Road
Future Land Use: Low Density Residential
Zoning: R-1AA (Single Family Dwelling) with a minimum lot size
of 11,700 square feet.
South: Future Land Use: Low Density Residential
Zoning: R-1AAAA (Single Family Dwelling) with a minimum lot
size of 21,780 square feet.
Site Analysis
Floodplain Impacts:
Based on the Flood Insurance Rate Map (FIRM) with an effective date of 2007, the site appears to contain no flood plains.
Wetland Impacts:
Based on preliminary aerial photo and County wetland map analysis, there appears to be no wetlands on the subject property. If applicable, a topographic survey showing wetland and floodplain delineations will be required at Final Engineering.
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 in Seminole County’s sewer utility service area and Sunshine Water’s water utility service area. The site will be required to connect to public utilities. There is an eight (8) inch force-main running along Sand Lake Road. An agreement for billing of sewer will be required between the County and Sunshine Water Services during Final Engineering plan review and prior to approval of the Utility Agreement for sewer service. This development is not within any reclaim irrigation service areas, thus irrigation would be provided by this development's potable water system or by an alternative irrigation source such as an irrigation well.
Transportation/Traffic:
The development will have a primary access onto Sandy Ln which is classified as a local road; a secondary (right-in/right-out only) access is proposed onto Sandy Lake Rd which is classified as an Urban Major Collector roadway. Sand Lake Rd is currently operating at a level-of-service “C to F” depending on the direction of travel and the time of day. Additional improvements to Sand Lake Rd may be required at time of Subdivision Process. Seminole County does not have improvements programmed in the County five (5) year Capital Improvement Program.
Sidewalks:
There is an existing sidewalk along the adjacent portions of Sand Lake Rd and Sandy Ln; therefore, the Developer will be required to connect to the sidewalk along both property frontages.
Drainage:
The proposed project is located within the Little Wekiva Drainage Basin, which has limited downstream capacity; therefore, the site’s design will be required to hold water quality, and volume for the twenty-five (25) year, twenty-four (24) hour storm event onsite unless a viable outfall with appropriate capacity is provided.
Buffers and Open Space:
The Missing Middle (MM) zoning district requires a minimum of eight (8) percent of net buildable acreage be provided as open space in accordance with SCLDC Sec. 30.8.3.8(a). At the time of Final Engineering review the plan will be evaluated for open space requirements in compliance with SCLDC Sec. 30.8.3.8(a)(2). Landscape buffers are not required based on intensity of the development.
Public School Capacity Determination:
Seminole County Public Schools provided a School Impact Analysis School Capacity Determination for the proposed project based on Concurrency Service Area (CSA) and Zoned Schools for the property. The analysis concluded that the students generated by the project at the three (3) Concurrency Service Area (CSA) levels would, at this time, be able to be accommodated without exceeding the adopted level of service (LOS) for each CSA by school type. The analysis notes this is a nonbinding review; the numbers are for informational purposes and as indicated in the analysis may not represent future conditions when final approval requires a School Capacity Availability Letter of Determination (SCALD) reservation letter from the School board.
Consistency with the Land Development Code
The proposed MM (Missing Middle) zoning designation has been evaluated for compatibility with the SCLDC in accordance with Chapter 30, Part 8.
The purpose of the MM zoning district is to provide a broader range of housing choices in order to encourage affordability whilst maintaining the overall character of the area by adhering to the established Future Land Use. The Future Land Use guides which typologies are allowable in Missing Middle. In this case, given the Future Land Use of Low Density Residential, small lot single family, cottage court, and duplex housing units are permitted; whereas triplexes, quadplexes, and townhomes are permitted with a maximum of two (2) stories.
The request is consistent with the Seminole County Land Development Code and the surrounding area. There are larger lots to the south with a required minimum lot size of 13,500 sq. ft. and lot width of 100 feet. The Foxwood Planned Development to the west requires a minimum lot size of 7,500 sq. ft. The proposed minimum lot size for the subdivision is proposed to be 6,500 sq. ft., which would act as a transition to smaller lot sizes whilst remaining compatible with the established overall density for the area. One (1) of the three (3) lots subject to the rezone currently retains split zoning of A-1 and R-1AA, which would require a rezone in any event if the property were to be redeveloped in the future for anything other than its current single family use. The rezone request remedies a current inconsistency in zoning for the subject property.
The proposed development supports the objectives of the Missing Midde by meeting the following criteria in accordance with SCLDC Sec. 30.8.3.7:
a) Missing Middle typologies may be clustered or distributed throughout the project.
Staff Analysis:
Not applicable, only one typology is proposed.
b) No single Missing Middle typology may exceed five (5) acres of developable land.
Staff Analysis:
Not applicable, the residential tract (developable land) is under five (5) acres.
c) Development includes a connected street grid which is accomplished by meeting the following conditions:
1) No portion of the project may be gated.
2) Existing or new streets/drives, whether public or private, shall divide the site into blocks. Block perimeters must not exceed two thousand (2,000) feet except where access management criteria for existing County roadways require greater lengths. The block perimeter is measured as the total length of a line enclosing the block along thoroughfare rights-of-way, internal streets, and civic spaces.
3) Sidewalks are required on both sides of every street.
4) Dead end streets, hammerheads, and culs-de-sac are prohibited except where specifically approved by the Development Services Director when wetlands, water bodies, or infrastructure corridors prevent connections.
5) The development must provide connections to all adjoining public streets and trails and existing "stub-outs" on adjacent properties.
6) The development must provide "stub-outs" for future connectivity to adjacent vacant lots.
7) Pedestrian or vehicular connections to existing commercial uses should be provided where feasible.
Staff Analysis:
The proposed project will not be gated and both internal sidewalks as well as connections to existing external sidewalks will be provided. The internal right of way is designed to establish connectivity from Sand Lake Rd to Sandy Ln. Although the current code section references the provisions of stub-outs, the overall design of the development is consistent with the intent of promoting connectivity and accessibility to adjacent streets and roadways. While stub-outs were not provided to the two (2) vacant lots to the northeast, access to those parcels are not inhibited by this development. One vacant lot retains frontage on Sand Lake Rd, while the other retains frontage on both Sand Lake Rd and Sandy Ln.
In forthcoming SCLDC updates, the requirement for stub outs will be removed in order to allow for more flexibility in design, subject to Board approval of such update. The overall development still meets the intent of the Missing Middle zoning district via implementation of the “block” design through connectivity to Sand Lake Rd and Sandy Ln. During the Final Engineering stage, if there are public safety and overall feasibility concerns that may limit the ability for the intent of the code to be met by means of access to Sand Lake Rd, the language in the forthcoming SCLDC update would allow the Development Services Director to waive the requirement of connections to adjacent streets, provided pedestrian connectivity is maintained. Potential constraints and obstacles of development such as grading, site elevation, and level of service of Sand Lake Rd may present challenges; however, these considerations do not preclude the site’s compatibility with the overall intent of the Missing Middle zoning district.
d) Restrictions near development boundaries:
1) Buildings are limited to two stories within one hundred (100) feet of a district boundary with an existing single-family development or single-family residential zone.
2) The lowest intensity typologies within the project shall abut boundaries with an existing single-family development or single-family residential zone.
Staff Analysis:
Building elevations will be provided prior to Final Engineering approval, in which the stories will be regulated. There is only one typology proposed, so provision number two (2) is not applicable.
Additionally, Missing Middle developments are required to meet the following site and building requirements:
a) Open Space: Where Open Space is required in the applicable zoning district, those standards shall be applied. If Open Space is not otherwise required, the standards below shall apply.
1) For developments greater than eight (8) units and a minimum of two (2) acres; a minimum eight (8) percent of the net buildable acreage shall be set aside as Open Space that meets the standards described below.
2) Open Space may be provided in multiple locations subject to the following requirements. Each qualifying Open Space must be:
a. Bordered by streets, stormwater ponds, natural lakes, or commonly accessible pedestrian pathways.
b. A minimum of .20 contiguous acres.
c. A minimum of forty (40) feet in width, except that open space areas adjacent to a stormwater pond or natural lake must be a minimum of twenty (20) feet in width from the top of berm to the public right of way or lot line or a dog park.
d. Open Space shall be proximate to Missing Middle units.
Staff Analysis:
The provided conceptual development plan proposes a minimum of eight (8) percent of net buildable acres as open space, and will provide pedestrian connectivity to all open space. Specific criteria will be evaluated at Preliminary Subdivision Plan/Final Engineering in order to ensure that the detailed plans meet the qualifying open space criteria.
b) Street Trees. Street trees are required in Missing Middle Developments and on all streets abutting Missing Middle Typologies in Mixed-Use Developments. Street trees must meet the following standards:
a. Be planted an average of forty (40) feet on center on both sides of internal streets and on existing rights of ways adjoining the site.
b. Be located in a planting strip or tree well with a minimum width of eight (8) feet. Tree wells or planting strips less than ten (10) feet in width must incorporate a root barrier at the edge of pavement.
c. Be selected from the list of approved Canopy Street Trees (30.14.15(j)).
d. Meet the standards of Sec. 30.14.16. - General provisions for all landscaped areas.
Staff Analysis:
The provided conceptual development plan notates the requirement of street trees and it is acknowledged by the Applicant that the criteria will be evaluated at Preliminary Subdivision Plan/Final Engineering in order to ensure that the detailed plans meet the criteria.
c) Minimum Parking Requirements:
1) Two (2) parking spaces are required per unit except that parking for units less than 1000 sq. ft. may be reduced to 1.5 spaces per unit.
2) On-street parking is required on streets adjacent to missing middle units.
3) Required parking may be located in common areas or on-street provided that such parking is within 150 feet of the unit.
Staff Analysis:
The conceptual development plan proposes on-street parking, and it is acknowledged by the Applicant that two (2) parking spaces will be required per dwelling unit over 1,000 sq. ft.
d) Building Frontage:
1) Buildings not fronting on a street must front on a common open space, a pedestrian pathway or a multi-use trail.
2) Buildings not fronting on a street must be part of a common emergency access plan or be adjacent to an alley built to emergency access standards.
3) Up to six (6) lots may be accessed by a commonly held easement drive that is non-gated and designed to allow fire access (aka parking court).
Staff Analysis:
The provided conceptual development plan proposes residential tracts on the internal road frontage. When lot lines are proposed at Preliminary Subdivision Plan stage, this section will be evaluated further.
The development plan provided is for reference of conceptual design and is subject to change during the subdivision process, consistent with all applicable code provisions and engineering practices. Staff finds the requested MM zoning classification to be consistent with the SCLDC and compatible with the trend of development in the area.
Consistency with the Comprehensive Plan
The purpose and intent of the Low Density Residential land use designation is to provide appropriate locations for residences at a maximum density of four (4) dwelling units per net buildable acre, with a limited list of public purposes and special exception uses. This land use requires a full range of basic services and facilities and may serve as an effective transitional use between more intense urban uses and Suburban Estates.
The proposed MM zoning is consistent with Policy FLU 4.2.1 by reducing lot sizes to allow for more compact site plans while adhering to the overall density in the area, adhering to the street tree requirements, and providing for a complementary Missing Middle typology with the existing neighborhoods. The request meets the trend of single family dwelling unit development in the surrounding neighborhoods while maximizing usable density within the allowable limit. The subject site is approximately 1,900 feet as the crow flies from the nearest boundary of the Urban Centers and Corridors Overlay. The proposed rezone supports encouraging a wider range of housing choices in and around the Centers and Corridors Overlay, which meets the intent of Policy FLU 4.2.1. (A).
This property is located within the aquifer recharge overlay. The applicant is aware and has stated compliance on the proposed development plan with Policy FLU 2.3.12 (B) (3) in that the maximum area covered by structures and impervious surface shall not exceed sixty (60) percent of the total land area. The Applicant has proposed a maximum impervious surface ratio of sixty (60) percent and is compliant with the applicable SCLDC sections pertaining to this overlay
The proposed MM zoning classification acts as a transition in zoning for the surrounding trend of development in the area by staying consistent with both the permitted uses and density provisions of the Low Density Residential Future Land Use designation while allowing for more dwelling units to be achieved through flexible site standards. The proposed development is consistent with the intent of the Missing Middle zoning, and congruous with the Low Density Residential Future Land Use for the site and surrounding area. Per Policy FLU 4.2.1 (A), permitted uses within Low Density Residential include Missing Middle housing typologies that allow up to four (4) dwelling units per net buildable acre. The proposed development is consistent with this policy.
Staff finds the proposed MM zoning classification to be consistent with the Comprehensive Plan.
In compliance with SCLDC Sec. 30.49 - Community Meeting Procedure, the Applicant conducted a community meeting on September 23, 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 an Ordinance enacting a Rezone from A-1 (Agriculture) and R-1AA (Single Family Dwelling) to MM (Missing Middle) as per the following motion:
Based on Staff’s findings and the testimony and evidence received at the hearing, the Planning and Zoning Commission finds the request consistent with the Comprehensive Plan and meets the applicable portions of the Land Development Code, and recommends the Board of County Commissioners adopt the Ordinance enacting a Rezone from A-1 (Agriculture) and R-1AA (Single Family Dwelling) to MM (Missing Middle).on approximately 7.54 acres located on the west side of Sandy Ln, south of Sand Lake Rd.