HALLANDALE BEACH, FLORIDA
MEMORANDUM
DATE: March 10, 2008
TO: D. Mike Good, City Manager
FROM: Richard D. Cannone, Development Services Director
SUBJECT: Application # 64-07-DB by Taubco Corp.
Hallandale Square Major Development Plan
600 East Hallandale Beach Boulevard
I. BACKGROUND INFORMATION
APPLICANT
600 Hallandale, LLC., Owner/Applicant
Taubco Co., Developer
PROJECT NAME
Hallandale Square
REQUEST
The applicant is requesting Major Development Review approval pursuant to Section 32-782 of the Zoning and Land Development Code in order to construct Hallandale Square, a five story commercial building containing retail, restaurants and a cinema with a total of 380,000 square feet in area.
LOCATION
Gulfstream Promenade Shopping Center.
The property is located at 600 East Hallandale Beach Boulevard
PLANNING DISTRICT
Gulfstream
PARCEL SIZE
The parcel is 8.62 acres.
Central City Business District; Planned Redevelopment Overlay (PRD) District; and the Planned Development Overlay (PDD) District.
EXISTING USE
A 59,650 square foot commercial shopping center.
PROPOSED USE
A commercial vertical mall with a total of 380,000 square feet in area consisting of 320,000 square foot of retail, 28,000 square foot of restaurant and a 749 seat cinema and a (5) five level parking garage with 4 mezzanine levels.
SURROUNDING ZONING
North - CCB (Central City Business) District
South - CRA (Commercial Recreational Active) District and PLAC (Planned Local Activity Center)
East - CCB (Central City Business) District
West - B-G (Business General) District across South Federal Highway
II. LAND USE HISTORY
Previous Request
On April 30, 2003 the Planning and Zoning Board recommended approval of Application #81-02-Z by GPH Holdings to apply the Planned Development Overlay (PDD) District to the property. The application considered by the Board consisted of a one story retail building with 11,187 square feet and a 5 story office building with 46, 800 square feet in gross floor area. After the Board meeting, the applicant decided to amend the proposal. The application was placed on hold. The applicant amended the proposal to reduce the one story building to 10,750 square feet and the medical office building to three stories with 36,330 square feet in floor area, for a total of 47,080 square feet in gross floor area. On March 16, 2004, the City Commission approved the Major Development Plan for the aforementioned proposal (Application #80-02-DB).
On April 7, 2004, the Commission also approved an ordinance applying the Planned Development Overlay district to the subject property. The intent of this overlay district is to supplement and modify the provisions of they underlying zoning district to encourage development and redevelopment through flexible development standards.
On June 1, 2004, the Commission approved vacating certain roadway reservation, easements and modifying non-vehicular access lines within the Promenade at Hallandale Plat.
Subsequently, on June 21, 2004, Robert Lechter, representing GPH Holdings filed an amendment to Application #80-02-DB which significantly deviated from the approved Major Development Plan described above. The three story office building proposed at the south end of the property was eliminated and a one story bank/retail building with 10,000 square and a one story CVS Pharmacy with a drive thru 14,400 square feet in floor area was proposed. On October 18, 2005 the City Commission denied the revised application.
On June 21, 2005, the City Commission approved a request by GPH Holding for
an extension of the Major Development Review Approval of Application #80-02
DB to build 47,080 square feet of commercial space including the 3 story
medical office building and a 10,750 square foot bank with drive thru. The
project was not built and the approvals expired on March 16, 2006
City Actions Related to the Area:
In 1992, the City created the Hallandale Financial District Corridor Plan as a
mechanism to promote redevelopment within the Hallandale Beach Boulevard
Corridor with high density taller buildings close to the road in a more urban
design. The City Commission on October 7, 2003 authorize the preparation of an
Ordinance to apply the Planned Redevelopment Overlay District to this area and
South Federal Highway in order to further redevelopment of the Corridors.
Related History
The Promenade at Hallandale Plat is restricted to the present development of 59,650 square feet. Also the non vehicular access lines (NVL) within the Plat must be modified to coincide with the proposed access driveways. The applicant will be required to file a Delegation Request with the City and the County to amend the present square footage and NVL line restrictions. Approvals must be granted and recorded before a building permit may be issued for the proposed project.
On October 17, 2003 the previous owner, GPH Holdup entered into an agreement with Alan Kornbluh for Sage Plaza. The City was not party to this agreement. The purpose of the Agreement was to provide a shared access driveway between the two properties. The Agreement runs with the land.
The Agreement:
1. allowed GPH to remove the fence between the two properties.
2. provides for a crosswalk/walkway between the two properties.
3. a minimal driveway connection between GPH and Sage Parcels to be improved by GPH.
4. GPH has the right at their expense, to close the western driveway at Sage.
5. GPH will provide for customer parking for Sage on their parcel.
III. DETAILS OF THE APPLICATION
Development Details
The applicant’s plans depict the following:
1. A five story commercial building consisting of 320,000 square feet of retail and 28,000 square feet of restaurant space and a 32,000 square foot/749 seat cinema. The overall height of the building is 128 feet. The City Commission has the discretion to permit up to 450 ft. for PDD properties.
2. Parking for the building is contained in a detached 5 story parking garage connected to the commercial building by 4 elevated walkways. The parking garage has entrances located from South Federal Highway, Hibiscus Road and the east side of the building.
3. The retail space is on floors one thru four. The cinema and restaurants are on level five of the building.
4. 2,267 parking spaces are proposed (1,534 spaces are required).
5. 12.2 % of the site will be landscaped including above ground landscaped areas. (15% is the minimum required).
6. 13.29% of the site is designed with pedestrian plazas and walkable space.
7. A common shared accessway with Sage Plaza from the east driveway.
OTHER SITE DETAILS
A portion of the driveway (33.47 feet) on the east side of the property is proposed within the Sage Plaza property. The applicant is in the process of
acquiring the Sage Plaza property said area to provide right of way as an extension of and to align NE/SE 8 Avenues. According to the proposed Development Agreement for the project, the applicant will acquire the Sage property to accommodate the driveway as proposed.
IV. INTERDEPARTMENT REVIEW SUMMARY
Comments/issues identified by the Development Review Committee (DRC) and the City’s Master Plan Consultant EDAW were discussed with the applicant during DRC review of the application. Some of these comments/issues have been incorporated into the required Development Agreement between the City and developer for the Major Development Plan application. The applicant has committed to traffic improvements which will mitigate the traffic concerns raised by the DRC.
In addition to the DRC meetings, EDAW, City Staff and the Applicant met on a number of different occasions to ensure the architectural and urban design elements for this project were consistent with the City vision to create a true “Town Center”. It is Staff’s opinion as well as the consultant’s that the Applicant has met many of the design concepts/elements outlined in the findings of the Master plan presented to the City Commission on February 27, 2008. Those elements, will serve as a catalyst in creating a vibrant, mixed use, sustainable pedestrian-oriented urban environment with an appealing character and sense of place.
The DRC recommends approval of the Major Development application, subject to conditions as enumerated under Section VIII, Staff Recommendations of this memo and in the proposed Development Agreement.
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Staff finds that this development is consistent with the City’s Comprehensive Plan. Specifically, the General Commercial designation permits office and retail uses and mixed uses. All of the uses proposed by the applicant are permitted under the land use category. Additionally, the proposed project will assist in furthering the following policies and objectives of the City’s Comprehensive Plan:
Policy 1.2.3: South Federal Highway: The City shall utilize the South Federal Highway Neighborhood Plan as a guide in the development and redevelopment of the South Federal Highway area.
Policy 1.5.8: Development themes for land use along Hallandale Beach Boulevard and US 1 shall be incorporated into the Land Development Code in the form of Special Zoning Districts that redefine these corridors as focal areas of the City. In conjunction with development of these Special Zoning Districts, site development standards will be revised to include innovative approaches to site and building design shall be implemented by 2000.
Policy 1.10.4: The City shall maintain innovative land development regulations that encourage mixed-use developments and incorporate site design and planning techniques that will enhance the quality of large scale developments or redevelopment areas.
Objective 1:16: Urban Infill and Redevelopment: Establish criteria which encourage development of urban infill and urban redevelopment area(s) to promote economic development, increase housing opportunities and maximize the use of existing public facilities and services.
Policy 1.16.1: Increase economic development and employment opportunities within urban infill and urban redevelopment area.
Policy 1.16.3: The Hallandale Beach Land Use Plan shall encourage mix use developments within urban infill and urban redevelopment area(s).
Furthermore, the retail/commercial uses, which are located on a transit corridor, will provide a number of employment opportunities and increase the economic development in the area. The proposal is also consistent with the City’s adopted Master Redevelopment Plan for Hallandale Beach Boulevard and with the proposed new City Wide Master Plan and Strategic Plan presently being developed by EDAW Consulting Firm.
VI. APPLICATION CODES AND ORDINANCES
1. The subject property is zoned Central City Business (CCB) District. Planned Redevelopment overlay District (PRD), and Planned Development Overlay District (PDD) are also assigned to the property.
The applicant proposes to build five story retail, restaurant and movie theater building and a 5 story parking garage on the property. The proposed use is permitted by the underlying and overlay zoning districts of the property.
2. Section 32-174 (i), Planned Development district (PDD) provides assignment of PDD as an optional zoning procedure to permit site design flexibility, greater land use intensity in order to encourage high quality innovative development and, promote its most appropriate use consistent with Comprehensive Plan policies. Development in PDD is governed by a development agreement pursuant to Section 32-174(d) (2).
All site development standards in a PDD are negotiated between the City and the applicant as part of the development process. Development must be in compliance with the site plan as approved by the City Commission.
3. Section 32-174(i) requires all Planned Development Districts must contain a minimum of 1.5 acres of land under unified control.
The subject property is 8.62 acre, therefore, it meets the minimum parcel size required. PDD zoning was applied to the property on April 4, 2004.
4. As mentioned previously, the City Commission may waive specified setbacks, floor area, landscaping, or parking requirements in lieu of a variance within areas zoned PDD.
Section 32-174(i)(3) permits smaller yard areas than those of the underlying zoning district where the use is appropriate for a particular
project minimum setbacks in PPD may be considered by utilizing one of the following methods:
a. the applicable setbacks of the underlying zoning
b. established setback pattern of adjacent property and property within 500 feet of the PDD site.
c. as a combination of (a.) and (b.) above utilizing good planning practices such as considering buffering, service areas, access for fire fighting equipment and containment of fire.
PRD overlay zoning allows a maximum of 15 feet front yard setback permits a zero setback on the side Interior property line and 15 feet on the corner sides.
The proposed building is designed with a colonnade setback 15 feet from Hallandale Beach Boulevard and 10 feet from Federal Highway. However, portions of the building are setback beyond the maximum allowed. In addition, Properties zoned CCB require a minimum of 15 feet to the rear yard. The proposed garage structure is setback 5 feet 11 inches from the rear property line (Hibiscus Road). When the Code required setbacks are applied, the proposal is deficient as follows:
SETBACKS REQUIRED PROVIDED DEFICIENCY
Front
E. Hallandale Beach 5’-0” 15’-0”(Column Line)
15’-0”(Max) 31’-1” (Maximum) 16’1”
Rear
Hibiscus Street 15’-0”(Min) 5’-0”(Minimum) 10 ft.
Side Street
(Federal Highway) 10’-0”(Column Line)
15’-0”(Max) 32’-5”(Maximum) 22’-5”
Side (East) 0’-0” 43’-10” -0-
Staff has no objections to the above requested waiver as the applicant has incorporated many of the public realm improvements discussed in the Master Plan.
5. Section 32-455( c ) requires one parking space for every 300 square feet of retail, one parking space for every 100 square feet of restaurant and one parking space for every four seats in a movie theater.
When the above referenced parking standards are applied, 1,534 parking spaces are required for the commercial uses proposed.
The applicant provides a 5 level parking garage with 4 mezzanine levels in a portion of the structure with a total of 2,267 parking spaces for a surplus of 735 parking spaces. The parking requirements are summarized below:
PARKING: REQUIRED PROVIDED DEFICIENCY
1. Retail (320,000/300) 1,066.67 -0-
2. Restaurant
(28,000/100) 280 -0-
3. Theater (1 per 4 seats) 18,725 -0-
32,000 square feet
4. Grand Total 1,534 2,267 -0-
The proposed parking exceeds the minimum required by 735 spaces.
6. Section 32-456 and 32- 457 requires a minimum of 2 loading spaces 12 feet in width by 50 feet in length for the retail component of the building.
The applicant provides five loading spaces located within the building accessible from Hallandale Beach Boulevard.
7. Section 32-453 specifies the design requirements for parking space dimensions, and aisle design standards.
The proposal meets all parking space dimensions and aisle design standards required by Code.
8. Section 32-159(d)(5) requires a minimum of 15% of properties zoned B-L District be landscaped.
38,254 square feet (10.88% of the site will be landscaped at ground level and 4,685 square feet (1.33%) will be landscaped above ground level for a total of 12.21% landscape credit. Therefore, the proposal is deficient by 2.79%.
9. Section 32-284(c)(3) requires one tree for every 1500 square feet of lot area. Section 32-285(c) (2) requires a minimum of 15 feet in height trees for properties zoned commercial and no more than 50% of the required trees may be palms.
According to the above criteria, 235 trees are required. The applicant proposes to install 182 for credit trees resulting in a deficiency of 53 trees. The Applicant has agreed to work with Staff to modify the species and reduce the deficiency as much as possible.
10. Section 32-176(g)(4) requires building facades shall occupy at least 60% of the street frontage but no more than 80% on any individual street.
The proposed building façade occupies a length of 90.83% along Hallandale Beach Boulevard, exceeding the maximum allowed by 10.88%. The building façade length along Federal Highway is 86.50%, exceeding the maximum allowed by 6.5%. Staff has no abjections to the requested waiver.
VII. REVIEW CRITERIA
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Major Development Review
Section 32-787 specifies the following criteria shall be utilized in the review and evaluation of applications for Major Development Review approval:
1. Natural Environment
Subject property is the site of the Gulfstream Promenade Shopping Center. The existing development will be demolished. There are no rare or historical trees on the property.
2. Open Space
The minimum landscaping area required by Code is 15%. The applicant’s proposal provides 38,254 square feet (10.88)% landscape at ground level. In addition, 9,370 square feet of landscaping is proposed above grade. Non-ground level landscaping is credited at 50% equating to 4,685 square feet or an additional 1.33 % of landscaping for a total credit of 12.21%.
Although the proposal is deficient in landscaping by 2.79%, the applicant provides an additional 46,753 square feet (13.29%) of open space consisting of pedestrian walkways and urban plazas which will provide additional urban space for pedestrians and visitors to the site.
According to the landscaped plans, the grounds and non-ground level planting areas will be extensively landscaped with mature trees, ornamental trees and shrubbery. However, the numbers of proposed palm species do not meet the City’s total credited tree requirements. The applicant has agreed to change the species or add additional palms to meet the minimum tree requirements as stipulated in the development Agreement.
3. Circulation and Parking
1,534 parking spaces are required for the development and 2,267spaces are proposed resulting in a surplus of 733 parking spaces.
4. Access Control
The project has 5 access points. Direct access to Federal Highway is a right in/right out only driveway between the commercial building and parking garage and via Hibiscus Road which will also be restricted to right in/right out. Direct access is also provided from East Hallandale Beach Boulevard via a private roadway aligning with NE 8 Avenue on the east side of the building. A portion of this driveway is on Sage property which the applicant is in the process of purchasing. Parking on the west side of Sage would be eliminated and provided within the Hallandale Square parking garage. The new roadway will be separated by a 9 foot. buffer and a 16.5 foot drive aisle to circulate around the Sage Plaza Building. Circulation within the parking garage has been designed to allow for free movement within the structure with no dead end corridors. Loading and service areas are also accessible via a new driveway from East Hallandale Beach Boulevard.
5. Public Transportation
Broward County, Miami-Dade County and the City bus services the Federal Hwy and Hallandale Beach Blvd. Several bus stop exists adjacent along Hallandale Beach Boulevard and Federal Hwy and the vicinity of the project site. Significant transit improvements will be made in the area as part of the Village at Gulfstream Park project, including a bus super stop proposed to be located to the south of the subject project.
6. Community Services
The building will have a trash enclosure in a service area on the ground floor of the building accessible from East Hallandale Beach Boulevard. The location was acceptable for service by the City sanitation trucks provided the developer contracts with the City for service by a separate agreement and the service area is designed with a minimum of 25 foot ceiling clearance for dumpster pickup. The developer has agreed to this requirement.
7. Drainage
Paved areas are proposed to have underground catch basins for storm water runoff as needed. Storm water must be retained on site. Drainage calculations will be required at time of permitting. The applicant will be
required to comply with DEP regulations and City criteria to retain a 5-year 1-hour storm on site.
8. Building and Other Structures
The development will consist of 320,000 square feet of retail, 28,000 square feet of restaurant, a 749 seat cinema in a 5 story building and a 5 story parking garage with 4 mezzanine levels for a total of 9 floors of parking. The overall height of the building is 128 feet. Three hundred fifty (350) feet is the maximum height allowed.
9. Concurrency Evaluation
According to Article V Section 32-782, determination of concurrency must occur prior to the approval of a building permit.
Staff has conducted a concurrency evaluation of the project relative to its impact on water, sewer, solid waste and drainage. Staff has determined that concurrency requirements for water, sewer, drainage and solid waste facilities have been met. Water, sewer and drainage calculations must be provided to the satisfaction of the City Engineer prior to the issuance of a building permit. The City reserves the right to require upgrades to the
water, sewer, and drainage existing infrastructure if it is determined the systems are inadequate or will be severely impacted by the development.
The developer has submitted an Impact Evaluation Report as required by Section 32-788 that addresses each issue. The following is a summary of the expected impacts to the various public utilities for reference.
Potable Water - According to the criteria in the Impact Evaluation Report, the development will generate the need for approximately 90,000 gallons of potable water per day. The City Water Plant is expandable to 15 MGD (Million Gallons per Day). The plant’s current capacity is 9 MGD. The City’s current demand is about 6 MGD. There is sufficient capacity to maintain this development.
Wastewater - The City has a Large User Agreement with City of Hollywood and several other communities for wastewater treatment. The City recently obtained additional capacity at the sewer plant.
The City’s current committed capacity is 7.85 MGD and the City’s total flow is 7.25 MGD according to the applicant, based on the proposed commercial / cinema use, the wastewater demand for the site is 65,000 gallons per day. There is sufficient capacity to maintain this development.
The developer is required to pay for their share of additional sewage demand from the Hollywood Wastewater Treatment Plan as a result of their development. The developer will be required to pay the City $321,425. This amount is based on the estimated gallons of sewage demand in applicant’s Impact Study and the City’s cost to obtain additional capacity at the Plant. Should the actual sewage amount generated be greater than specified in the applicant’s Impact Study, the developer will be required to pay the actual cost to the City.
Transportation System – The applicant was required to submit a traffic Study and Trips Run Report pursuant to Section 32-788 (g) for an analysis of the impact of the development as related to current and projected roadway usage and design capacities. The City’s consultant for this
project, HDR, reviewed the Study. According to the consultant, the project will generate a significant amount of new traffic to the roadway system (1187 new net external vehicular/ 962pm peak hour trips) after adjusting for the existing shopping center trips. As the City is within a designated Urban Infill area, development projects may not be denied based upon concurrency, however they are required to mitigate their impacts. The applicant will be mitigating its impacts as outlined in the recommendation section of this report.
The owner has agreed to pay for any future fees within three (3) years of the issuance of the Certificate of Occupancy established by the City to fund infrastructure improvements including but not limited to traffic and transit improvements as more specifically described in the attached Development Agreement between the Developer and the City.
Community Meeting
The developer held a Community Meeting on January 15, 2007 to present the project to the community in a public forum. The meeting was advertised on January 12, 2007and notices were mailed to all area residents and owners within 1,000 feet from the site; in accordance with City’s Administrative Policy #2014. 011.
Financial Impact
The project’s anticipated value at build out is $85 million. It is expected the proposed development will generate approximately $1,708,250.00 in real estates taxes. As this project is located in the CRA, most of the revenue would go to the City.
PRD Design Guidelines
Properties zoned PRD are also subject to the adopted Design Guidelines for the PRD Overlay District. The proposed development has been found to be generally consistent with the established design guidelines for properties zoned PRD.
Master Plan
The subject site lies within the neighborhood planning area known as the Hallandale Beach Town Center. The Town Center planning area also includes the Villages at Gulfstream as well as the City’s municipal complex. In addition, the proposed “Hallandale Square” development is located along the Hallandale Beach corridor, which has been identified as a focus for redevelopment. The intersection of Federal Highway and Hallandale Beach Boulevard is the gateway to the City and in the heart of Hallandale Beach. The subject site has been designed to take proactive steps towards responsible urban form and function.
The master plan encourages the following design principles: redevelopment of surface parking lots, inclusion of public/civic space, pedestrian/vehicular connectivity, urban landscape materials, green building practices, and flexibility to create unique developments. These objectives have been incorporated into the design of the “Hallandale Square” development at the design stage of the project. The applicant’s development team has worked closely with the City’s Master Plan consultant and City staff to integrate these objectives seamlessly into the development program.
The existing development consists of a suburban shopping center surrounded by surface parking. The development was realized when combining the gateway location with the flexibility provided in the Planned Redevelopment Overlay (PRD) District and the urban design guidelines set forth in the Master Plan. The project includes an expanded sidewalk in concert with the Master Plan’s objective of a 20-foot minimum sidewalk along the major corridors. A covered colonnade extends from the building providing cover and connectivity along the periphery of the site. To complete the pedestrian experience, street trees will line the project’s frontage creating an urban rather than suburban landscape theme consistent with the Master Plan’s objectives for urban form and design. Also, store fronts along the frontage lines create a visual and aesthetic presence to attract and ultimately gather pedestrians at one of the three urban plaza spaces, complete with water features.
In addition, both the HDR traffic study and pending master plan contemplates neighborhood roadway connectivity with major transit corridors. The proposed development plan has been designed to accommodate various pending options to increase this connectivity within the subject area.
Green Development
The applicant has agreed to design and construct the development utilizing the principles of sustainable or “green” design for the benefit of the community; the future building occupants, tenants and owners; and the global environment in general. Examples of such sustainable or ‘green’ development systems, products and practices that might be incorporated into the design and construction of the proposed Development could include, by way of example: reduction of pollution and land development impacts from automobile use; reuse and recycling of stormwater for non-potable uses such as landscape and irrigation and custodial uses; and high performance, energy efficient building technologies and systems (HVAC, lighting, windows, etc.). The type of “green” certification is outlined in the attached Development Agreement and will be required prior to issuance of Certificate of Occupancy.
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VIII. STAFF RECOMMENDATIONS
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The Development Agreement will be provided to the City Commission in advance of the meeting.
Prepared by:
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Christy Dominguez
Planning and Zoning Director
Reviewed and Concur:
_______________________ __________
D. Mike Good, City Manager Date
_____ Approved _____ Denied _____ Hold for Discussion
Comments:
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CD/aw
Cc:
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