Subject:
Title
Case No. FLU-21-06 (Salamander Innisbrook, LLC) (first public hearing)
An Ordinance amending the Future Land Use Map of Pinellas County, Florida, by changing the land use designation of approximately 64.1 acres located at 36750 U.S. Highway 19 North in Palm Harbor; from Recreation/Open Space, Residential Suburban and Residential Low Medium to Residential Low; and from Residential Estate Residential Suburban and Residential Low Medium to Recreation/Open Space.
label
Recommended Action:
Recommended Action
Based upon evidence and findings contained in the staff report and attachments, Case No. FLU-21-06 is recommended for:
Approval of the transmittal of an Ordinance to the State Land Planning Agency (Florida Department of Economic Opportunity) for a Future Land Use Map (FLUM) amendment from Recreation/Open Space (R/OS) (32.625 acres), Residential Suburban (RS) (2.054 acres) and Residential Low Medium (RLM) (8.148 acres) to Residential Low (RL) (42.827 acres); and from Residential Estate (4.506 acres), RS (1.276 acres) and RLM (15.491 acres) to R/OS (21.273 acres) on approximately 64.1 acres located at 36750 U.S. Highway 19 North in Palm Harbor.
• This is a request for a large scale (greater than 50 acres) FLUM amendment, and this is the first of two Board public hearings required to adopt the ordinance. The second public hearing will follow State and regional agency review and comment if the Board authorizes the ordinance transmittal.
• The applicant is seeking a FLUM amendment on 64.1 acres of property located within the Innisbrook Development Master Plan (DMP) area.
• As part of a separate application to modify the existing DMP, the applicant is proposing to transfer 180 residential units of entitled development per the DMP from certain existing Parcels into a new Parcel L.
• The separate but contingent FMP modification application will be heard by the Board of County Commissioners (Board) on the date of the second required public hearing for the FLUM amendment should the Board authorize its transmittal.
• The Local Planning Agency (LPA) unanimously recommended approval of this request (vote 4-0), based on their agreement with the evidence and findings presented by staff. 10 persons appeared in person at the LPA hearing: one spoke in favor and nine spoke in opposition.
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Strategic Plan:
Deliver First Class Service to the Public and our Customers
5.2 Be responsible stewards of the public’s resources
Foster Continual Economic Growth and Vitality
4.6 Support a vibrant community with recreation, arts and culture to attract residents and visitors
Summary:
Summary
The subject property is the Innisbrook Resort master-planned development in Palm Harbor. The Master Plan covers approximately 845.55 acres between US Highway 19 and Alternate US Highway 19, south of Klosterman Road and north of Bee Pond Road. Innisbrook was created in the late 1960s as a golf resort and residential community. It is approved for 2,305 residential units, of which 1,876 have been built over various areas of the development. The built residential units include a mixture of apartments, condominiums, and single family detached homes.
The applicant, Salamander Innisbrook, LLC, wishes to make certain FLUM amendments to support modifying the Innisbrook Development Master Plan (DMP) to help adapt to changing trends in the sport of golf and to maintain competitiveness with other similar golf resorts located in other parts of the country. The applicant is proposing to convert a portion of one (1) of the existing golf courses (Osprey North Course) into a newly designed “short course” and redevelop the remaining portion of the original course into new residential housing. The Osprey North Course is in the northern section of Innisbrook near Klosterman Road. The new residential development would be in newly designated ‘Parcel L’ on the DMP. None of the other three (3) existing golf courses are proposed to change. In addition to a portion of the Osprey North Course, the residential development within Parcel L would also replace other existing improvements, including the 32,000 square foot Inverness Hall convention center, two (2) office buildings that total approximately 11,000 square feet, and associated surface parking.
Parcel L consists of 53.71 acres and is proposed for a maximum development potential of 180 residential units in the form of either single family detached homes or townhouses. The units would be transferred from the remaining pool of 429 units that currently exist within other areas of the DMP. No new density will be created.
Because 32.65 acres within Parcel L is designated R/OS on the County FLUM, a land use amendment to a residential land use category is required in addition to the modification of the DMP. Also, as part of this FLUM change request, other existing parcels are being changed from their current residential land use designations to the R/OS designation. There is a companion DMP modification (case # DMP-21-02) that will be heard by the Board on the date of the second required public hearing for the FLUM amendment should the Board authorize its transmittal. The entire Innisbrook development is zoned Residential Planned Development (RPD), which requires a DMP. No Zoning Atlas changes are needed or being sought as part of the applicant’s overall proposal.
FLUM Request:
This FLUM request has three (3) primary components. The first is to change FLUM designations on a newly created DMP Parcel L (L-1, L-3, L-4 and L-5) from RS, RLM, and R/OS to RL in the amount of 42.819 acres. The remainder of the total 53.71 acres within Parcel L will remain as R/OS.
The second is to change FLUM designations on newly created DMP Parcel L (L-6, L-7, L-8, L-9 and L-10) from RS and RLM to R/OS in the amount of 4.612 acres.
The third is to change FLUM designations on existing DMP Parcels B, D, E, G and H from RS and RLM to R/OS in the amount of 16.661 acres.
To note, newly created Parcel L (L-2) is a 0.038-acre area currently designated as Preservation (P) on the FLUM due to the presence of wetlands. A recent wetland survey conducted verified that wetlands in fact do not exist on this area and, thus, the P designation will be subject to a map boundary adjustment to R/OS on the FLUM.
In summary, 42.819 acres will be converted to RL on the FLUM. This change is located entirely within newly created DMP Parcel L. It should be noted that 8.148 acres of new Parcel L is currently designated with the RLM FLUM category which allows up to 10 units per acre. This designation will be removed and replaced with the RL designation which limits density to up to five (5) dwelling units per acre, thus, reducing the allowable density by half.
A total of 21.273 acres will be converted from various residential designations to the R/OS designation on the FLUM: 4.612 areas located within DMP Parcel L and 16.661 acres located on other parcels elsewhere in the Innisbrook Resort master-planned development.
Transportation Framework:
The applicant submitted a traffic impact study that indicates minimal impact on the surrounding public transportation network. The surrounding roadways are anticipated to have adequate capacity following buildout of the proposed redevelopment. Parcel L will be accessed from internal private roadways within the Innisbrook Resort. The nearest existing external entrance into Innisbrook is off Klosterman Road, which is a staffed gate. Improvements, which include a relocated gate house to increase vehicle stacking space and separate lanes for residents and visitors, are proposed to this entrance for improved access both to new Parcel L and to all the Resort. An emergency access point is also being proposed on Klosterman Road. This emergency connection will only be allowed if required by the Fire Marshal.
Open Space Framework:
Objective 1.5. in the Recreation, Open Space and Culture Element of the Pinellas County Comprehensive Plan states: In recognition of the limited amount of available open space remaining within the County, the County shall prohibit the conversion of dedicated recreation/open space land uses and encourage the retention of non-dedicated recreation/open space land uses.
There is no dedicated recreation/open space area within the Innisbrook Resort. The net reduction in recreation/open space includes non-dedicated area in the amount of 11.352 acres of the approximately 618 acres total, which amounts to approximately 73% of the total 844.55 acres that comprise Innisbrook Resort. These recreation/open space areas primarily include golf course property reduced in size to establish a new, modified ‘short course’. Other reductions in R/OS include areas, while designated as such, are not actually utilized for recreation and open space activities, including accessory office structures and surface parking areas.
Those locations within the DMP from which all residential density is being transferred will be designated R/OS on the FLUM and the modified DMP. Within Parcel L itself, proposed buffers, stormwater ponds, and other open space areas will be designated R/OS. Future residents of Parcel L will have access to all the recreational uses within the Innisbrook Resort, including golf driving ranges and teaching facility, tennis and racquetball courts, pools, fitness center, and spa. In addition, the applicants are committing via the DMP to enhance vegetated areas within various locations throughout Innisbrook by removing invasive species and replanting native hardwood and palm trees.
Utilities and Stormwater Framework:
Innisbrook is within the County’s potable water and sanitary sewer service areas. The water and sewer utilities for Parcel L will be constructed by the developer and then transferred to the County. The stormwater management system will be required to meet the design standards and permit process of both the Southwest Florida Water Management District (SWFWMD) and the County. It is important to note that adjustment to the locations of the proposed stormwater ponds as shown on the DMP may become necessary as part of the site plan review process, which is permissible per the Pinellas County Land Development Code.
Surrounding Uses:
Much of the land surrounding proposed Parcel L is within the Innisbrook Resort, including golf course areas and open space to the east, south and southwest. Existing condominium buildings within Innisbrook to the southeast of Parcel L are buffered by this open space. To the north and northwest of Parcel L are single family residential homes and institutional uses that are not part of the Innisbrook development. Directly adjacent uses to the north include Klosterman Road, the Klosterman Oaks residential subdivision and a place of worship. A 15-foot-wide enhanced buffer including an opaque fence is proposed along the north property line abutting Klosterman Oaks and a 30-foot natural buffer or enhanced existing buffer is proposed adjacent to the church property and along most of where Parcel L fronts Klosterman Road. These buffer areas are depicted on the DMP and are proposed to be designated as R/OS on the FLUM.
Flood Risk Mitigation:
Parts of the western extent of proposed Parcel L are within the Coastal High Hazard Area (CHHA), which is the area defined by the Sea, Lake and Overland Surges from Hurricanes (SLOSH) model to be inundated from a category one (1) hurricane, as reflected in the most recent Regional Evacuation Study, Storm Tide Atlas.
Policy 1.3.5. of the Costal Management Element of the Pinellas County Comprehensive Plan states: the County shall not approve any request to amend the FLUM to designate parcels of land within the coastal storm area with a FLUM category that permits more than 5.0 dwelling units per gross acre.
The proposed RL FLUM designation intended to accommodate the transfer of dwelling unit entitlements allows for a maximum of five (5) dwelling units per acre. There is currently RLM designated area in the new Parcel L that allows for up to 10 dwelling units per acres that is proposed to be replaced by the lower density RL designation. A 1.276-acre area currently designated as RS with an allowable density of 2.5 units per acre is also proposed for conversion to the RL designation. Also, to note, this proposal, including the modifications to the DMP, are not increasing density in the overall Innisbrook master-planned development.
Most of the CHHA within Parcel L is planned to remain open space or utilized for stormwater retention and/or buffering. A small portion of Parcel L in the CHHA is remaining in a residential designation so no new density is being placed on that portion of Parcel L. In addition, an access road into a section of Parcel L slated for townhouse development crosses the CHHA. While this proposed townhouse area is not within the CHHA, the road access may be subject to storm event impacts. To address this potential issue, the applicant is committing via the DMP that all roads shall be designed to meet the current base flood elevation and that the entrance to the western townhouse section shall also maintain existing drainage patterns by providing drainage flow under the road. In addition, the applicant is also committing that all the habitable buildings shall be constructed to exceed the current required finished floor elevation by two feet (2’). Emergency Management staff has indicated no objection to the overall proposal.
Conclusion and Summary Recommendation:
DRC staff is of the opinion that the proposed FLUM designation changes are compatible with the surrounding uses and consistent with the Pinellas County Comprehensive Plan. The LPA found the application consistent with the Comprehensive Plan and recommended approval by the Board. 10 persons appeared in person at the LPA hearing: one (1) spoke in favor and nine (9) spoke in opposition. Several issues raised in opposition pertained to internal grievances with the Innisbrook Resort unrelated to this Case (e.g., tee times, lack of sidewalks, broken fence, crime). The attorney for the applicant has informed County staff that they will be reaching out to those who expressed opposition at the LPA hearing in an attempt to address concerns prior to the May 24 BCC public hearing.
The planned development entitlements to be transferred from existing parcels to a new Parcel L is consistent with the proposed RL land use category and is allowable within the existing RPD zoning district. The net loss of 11.352 acres of the overall approximately 618 acres of non-dedicated R/OS area is de minimis and not inconsistent with Comprehensive Plan policy intent. The 11.352 acres lost consist primarily of private golf course property internal to the resort and other areas developed with accessory buildings and surface parking, with little public benefit to County residents at large. Furthermore, while golf course area is being reduced, the course itself will remain functional. In addition, the applicant is committing to various mitigation measures through the proposed modification of the DMP, including enhanced buffering along property lines external to the Innisbrook development, vegetative/habitat enhancement at various locations throughout the Resort, and flood risk reduction for access roads and residences.
Staff’s recommendation is to approve the requested FLUM amendment. The primary consideration for this recommendation is based upon evidence and findings contained in the staff report and attachments.
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Background Information:
The Local Planning Agency recommended approval of the request during its April 14, 2022, public hearing (Vote 4-0).
Surrounding property owners were notified by mail. Signs advertising the public hearings were posted at the subject property.
Fiscal Impact:
N/A
Staff Member Responsible:
Carol Stricklin, Director, Housing and Community Development
Partners:
N/A
Attachments:
LPA Report
Case Maps
Ordinance
Impact Assessment
Case Application
Correspondence
Public Notification Map
Presentation
Legal Ad
Legal Ad Map