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Home My WebLink AboutR-84-1408J-85-66 0 f RESOLUTION No.84-140S A RESOLUTION APPROVING IN PRINCIPLE THE BAYSHORE DRIVE DEVELOPMENT STUDY GENERALLY BOUNDED BY SOUTH BAYSHORE DRIVE JEFFERSON STREET, LINCOLN AVENUE AND MARY STREET; TO INITIATE REZONING OF CERTAIN PRIVATE PROPERTIES WITHIN THAT AREA;' FURTHER FIND- ING THAT SAID PLAN ATTACHED HERETO O AND INCORPORATED HEREIN BY REFERENCE, IS IN CONFORMITY WITH THE MIAMI COMPREHENSIVE NEIGHBORHOOD PLAN. WHEREAS, the Miami Planning Advisory Board, at its meeting of December 5, 1984, following an advertised hearing, adopted Resolution PAB-128-84 by a 7 to 1 vote RIEcmENDING APPROVAL in principle of the Bayshore Drive Develop- ment Study, as hereinafter set forth; and WHEREAS, the City Ccn dssion after careful consideration of this matter deems it advisable and in the best interest of the general welfare of the City of Miami and its inhabitants to grant this plan, as hereinafter set forth; NOW, THEREFORE, BE IT RESOLVED BY THE COMMISSION OF THE CITY OF MIAMI, FLORIDA: Section 1. That Bayshore Drive Development Study, generally bounded by South Bayshore Drive, Jefferson Street, Lincoln Avenue and Mary Street, all in Coconut Grove, for the initiation of rezoning of private properties within the area, is hereby approved in principle. Section 2. The Bayshore Drive Development Study attached hereto and incorporated herein by reference, is in conformity with the Miami Comprehensive Neighborhood Plan. PASSED AND ADOPTED this 13 day of December 1985. Maurice A. Ferre MAURICE A. FERRE, MAYOR H G. ONGIE, CITY PREPARED AND APPROVED BY: APPROVED AND CORRECTNESS: • O F. M Eff LUCIA A. ASSISTANT CITY ATTORNEY CITY ATTORNEY CITY COMMISSION MEETING OF D E C 13 1984 WiiUii Nod-QQ4#4i REMARKS. 4 22 ;>!"_:3-�Ji-c�C� .•tc`r10;i;�^tr_�.,;�.t Howard V. Gary City Manager CLJ - ne Director Planning and Zoning Boards Administration Department •XTE November 26, 1984 •ILE: RESOLUTION BAYSHORE DRIVE DEVELOPMENT STUDY COMMISSION'AGENDA - DECEMBER 13, PLANNING AND ZONING ITEMS It is recommended by the Planning Department that the Bayshore Drive Development Study (November 19T41— which proposes certain zoning # actions and transportation improvements in the area between South Bayshore Drive and Lincoln Avenue, from a erson treet to Mary Street in Coconut Grove Be approved, in principle. The Planning Advisory Board, at its meeting of December 5, 1984, Item 14, will consider the approval, in principle, of the Bayshore Drive Development Study (November 1984) which proposes certain zoning actions and transportation improvements in the area between South Bayshore Drive and Lincoln Avenue, from Jefferson Street to Mary Street in Coconut Grove. The recommendations of the Planning Advisory Board will be presented to the Commission at the meeting of December 13, 1984. Backup information is included for your review. A RESOLUTION to provide for the above has been prepared by the City Attorney's Office and submitted for consideration of the City Commission. AEPL:111 cc: Law Department 3� NOTE: Planning Department recommends: APPROVAL yly" c w' 84-4408 I - AN ANALYSIS OF DEVELOPMENT POLICY fi ..d�.�;�. d,..a ... ._..:`. ..�.. .r: + •-a�Y:'w h• .,.:." ..... �, ,'gyp. `. . .. . ,_ . � ,. .... - .r+ ,.,. •c J �4 N'.rN s•Iu.w�.•:. Ya..��. �,, r Llr •.o rb .Y,.� �„l�„�.n .iJw..�•p, �. A'.!?�r.��7 ..1 r. a.. p,.� .��1� A!rN �BAYSHORE DRIVE BAYSHORE DRIVE DEVELOPMENT STUDY An Analysis of Development Policy Prepared by the City of Miami Planning Department Sergio Rodriguez, Director Jack Luft, Planner III Cathy Swanson, Planner I Richard Butler, Graphics Olga Garcia, Graphics Mori Vega, Report Text November, 1984 BAYSHORE DRIVE C, 0, L—ji L I AVE.`OR�O ,', �iya� � r; �� fWANfON � e YV-er, Irk LA T-pp It 9 0e y.. �111 fall 11 fill mill D C LA AYE[W r- TIOUT ................ viv Al ................ .. .v'r:... . IN . .... F. X . ................ . • DAY 31401111 CRIVE s I , MAY a , 9XV I'lut tv at m ". 11.1,1*0117 ARK KEY STUDY AREA DINNER 0 "ALL Gill 1974 to 1982 For the next eight years, little new development occurred while several buildings were renovated and remodeled. Land values, unt;l the late 1970's were generally under $20 per square foot and considered high at that. South Bayshore Drive was still one of the County's prestige development areas but high interest rates, a faltering national economy and slow market demand combined to stall new development. With the economic upturn of the late 1970's through the early 1980's and high demand from Latin American markets, new pressure for investment and development resulted in Grove Towers (22 stories), the Coconut Grove Bayshore Condominiums (14 stories) and the Grand Bay Hotel (15 stories). Still, the floor area ratio (FAR.) remained at 1.5 and with only a few relatively minor variances of 0.2 or 0.3 additional FAR, the historical zoning limits held. 1982 to 1984 �A The first major zoning change contrary to the Coconut Grove Master Plan occurred with the rezoning of the northerly 220 feet, (fronting on Tigertail), of the tract of land now occupied by the new Grand Bay Plaza Office building. Since 1962, a buffer strip of residential apartment zoning had been maintained along the southerly side of Tigertail to protect low density neighborhoods to the north. Citing the single ownership of property from Tigertail to Bayshore and the need to develop one uniform project (unlike the Coconut Grove Hotel which built townhouses • facing Tigertail), the zoning change was granted by the Commission. By increasing the amount of commercially zoned land, this change had the effect of increasing the size of the office project by thirty (30) percent. This was quickly followed by, a second zoning change request from residential to office for a property adjacent'to the westerly edge of the Naval Reserve Center, and it, too, was granted. This second zoning change was granted subject to restrictions on commercial traffic entering Tigertail directly from the site and residential townhouses being built facing Tigertail. Between 1982 to 1984, land values doubled. A high of over $120 per square foot was paid for office zoned (RO-3/6) land adjacent -to Aviation Avenue. Present Against this background of continuing development, rising land values, extensions of the RO-3 zoning district 6AYRHORE DRIVE \\ �� ° j ``i� w, V� ,fir �" ~`Q (�'4pCr A```\� �`fy� � `!~ 1 '�'� Ej NIAYUA = � El AYY. L \ i TRAPP i AvE. Ic I�J ` L P � u AVE. A 0!_L4W STUDY AREA c rm" 1 RAYSHORE DRIVE BAYSHORE DRIVE DEVELOPMENT STUDY n Analysis of DevelopmentPolicy I. BACKGROUND The RO-3 zoning district along South Bayshore Drive in Coconut Grove defines the only high -density, so called high- rise development, district within the area. One half mile in distance from McFarlane Road to just east of Aviation Avenue, this lineal corridor of mixed office and residential use has been the focus of considerable debate, change, investment, speculation and development for over thirty years. Between the Sangamon Interglacial epoch, when Florida rose from the sea almost 100,000 years ago and World War II, the South Bayshore Drive area saw little development, save for a few pioneer homes atop the coastal Atlantic Ridge overlooking Dinner Key. From the 1940's to the mid 1960's, an assortment of apartment buildings and motels dominated the silver bluffs until the Coconut Grove Bank signaled a shift to commercial use. The pace of development quickened and within ten years, Sailboat Bay (twelve stories), Yacht Harbour (19 stories), Coconut Grove Hotel (21 stories) and Office in the Grove (10 stories) marked the transition to high rise development that provoked -a new community debate. Although the zoning (then R-C) has remained constant since the early 1960's, the late coming necessity for developers to utilize the full zoning intensities permitted proved shocking and troubling to Grove residents who opposed highrises and they subsequently demanded a master plan to control mounting development pressures. Coconut Grove Master Plan - 1974 Although a community wide planning effort, the Coconut Grove Master Plan was seen by many as having its major focus in controlling high• density development such as had then recently appeared on South Bayshore Drive. Still, it was the Planning Study's conclusion that the traditional South Bayshore Zoning intensity which permitted a building floor area of 1.5 times as great as the lot area it occupied was acceptable. The recognition that a high density mixed use office development core along a major automobile thoroughfare was reasonable and proper was accepted by the Plan. It was recommended, however,, - that development plan review, design guidelines, increased building setbacks, and a ten story height limit be adopted. The Miami City Commission rejected the design review, setbacks, and height limits. 'N 1 1974 to 1982 For the next eight years, little new development occurred while several buildings were renovated and remodeled. Land values, until the late 1970's were generally under $20 per square foot and considered high at that. South 8ayshore Drive was still one of the County's prestige development areas but high interest rates, a faltering national economy and slow market demand combined to stall new development. With the economic upturn of the late 1970's through the early 1980's and high demand from Latin American markets, new pressure for investment and development resulted in Grove Towers (22 stories), the Coconut Grove 8ayshore Condominiums (14 stories) and the Grand Bay Hotel (15 stories). Still, the floor area ratio (FAR) remained at 1.5 and with only a few relatively minor variances of 0.2 or 0.3 additional FAR, the historical zoning limits held. 1982 to 1984 The first major zoning change contrary to the Coconut Grove Master Plan occurred with the rezoning of the northerly 220 feet, (fronting on Tigertail), of the tract of land now occupied by the new Grand Bay Plaza Office building. Since 1962, a buffer � yo- n�i .,.a._,. strip of residential apartment zoning had been mainta;:red along the southerly side of Tigertail to protect low density neighborhoods to the north. Citing the single ownership of property from Tigertail to 8ayshore and the need to develop one uniform project (unlike the Coconut Grove Hotel which built townhouses - facing Tigertail), the zoning change was granted by the Commission. By increasing the amount of commercially zoned land, this change had the effect of increasing the size of the office project by thirty (30) percent. This was quickly followed by. a second zoning change request from residential to office for a property adjacent'to the westerly edge of the Naval Reserve Center, and it, too, was granted. This second zoning change was granted subject to restrictions on commercial traffic entering Tigertail directly from the site and residential townhouses being built facing Tigertail. Between 1982 to 1984, land values doubled. A high of over $120 per square foot was paid for office zoned (RO-3%6) land adjacent `to Aviation Avenue. Present Against this background of continuing development, rising land values, extensions of the RO-3 zoning district 0 I— . . . � I . 0 ' �� "WaKW- - . - . . . " �. ..I I I : '' �, � 11 .-1 �� -.1" " 11 - � � 1 11. � � I .. lie BA'YSHORE DRIVE to Tigertail Avenue and diminishing availability of land, an application was made in early 1984 for approval by the South Florida Regional Planning Council of a Development of Regional Impact Assessment Report for theproposed Terremark, project at Aviatioh Avenue and Bayshore Drive. This project seeks to change the allowable development intensity of 1.21 gross lot area FAR (roughly equal to the prior R-C 1.5 net lot area FAR) to an F.A.R. of 2.42 times gross lot area (measured to the centerline of adjacent streets). This would double the size of presently allowed structures on a given site and like earlier zoning changes along Tigertail, constitute a precedent for identical zoning increases within the entire RO-3 zoning district from McFarlane Road to beyond Aviation. II. STUDY OBJECTIVES Clearly, there exists significant pressure for changes in traditional zoning standards that control development activity along South Bayshore Drive. Economic pressure, diminishing land resources, the prestige of a quality location and a growing sense of kinship to market forces that have shaped Brickeli; all are factors in forcing the question of what direction will South Bayshore Drive development take in the next decade. Unlike 1974, when development was belatedly catching up with long standing zoning thresholds, today the concerns about growth impacts must deal with limits that may be set to accommodate specific developments rather than the needs of the larger community, which is the basis for zoning controls. This raises the central question to be addressed by this study, "What is the proper zoning for South Bayshore Drive and what are community needs that dictate proper zoning?" Implicit in this question is the consideration that perhaps zoning. laws that have remained unchanged for twenty-five years are in need of updating to reflect very different social, economic, and environmental resource realities in 1984. Policy Debate This study wishes to engage the citizens of this community in a debate that will search for affirmation o; basic policies to guide zoning and development. Relative to the South Bayshore Drive RO district, several issues that will form the framework of this debate include: 1. Impact on Community Support Systems - Traffic carrying capacities. water, sewer and open space/recreation facilities, concentration versus sprawl, parking impacts on Dinner Key. f® ,,< "'� �'} frvxt ,MA $�'k �,?`r�:;p• Yam" %d .k y,. k'.PEr .ri a tt 2. Scale of Development - Height of structures, coverage of ground at the expense of open space, bulk of structures as it affect views, light and air, and relationships to adjoining low density neighborhoods. i 3. Impact on Environmental Systems - Ability to protect environmentally sensitive areas of substantial tree canopy and ridge line rock out -crops; relationship to hurricane flood levels, storm water run-off. 4. Economic Impacts, - Rising imbalance in land values between adjoining districts, spill over speculative pressure on economically disadvantaged neighborhoods, displacement of growth from areas of better support (transit stations), long term economic stability from quality development, improvement in tax base, Miami's competitive advantage vis-a-vis adjacent communities, job creation effect of hotels on economic base of neighborhood. S. Housing Impacts - Premature destruction of existing affordable housing, pressure for commercial conversion adjacent residential areas, zoning bonuses for mixed use to attract housing, creation of jobs closer to housing resources. Formulation of Objectives Consideration of the above issues and others of concern to the community will lead to the prioritization of needs and the identification of relevant policy objectives to satisfy those needs. These objectives should address specifically the following parameters and directives of zoning policy: 1. Appropriate intensity levels for development (floor area ratio). 2. Height to coverage and setback limitations. 3. Parking requirements. 4. Appropriate uses and mix of uses, if desirable. 5. Urban design standards for building relationships to streets, landscaping, preservation of site features, amenities. 6. Transition zoning to adjacent neighborhoods. 51 BAYSHORE DRIVE 7. Automobile access limitations. 8. Impact fees to mitigate external .burdens to public systems. II1. EXISTING CONDITIONS . The following assessment of existing conditions provides a basis for it defining needs and shaping responsive objectives and policies. Land Use There are numerous types of land uses and intensities within the South Bayshore Drive Study Area. These include residential uses, hotels, office buildings, government/institutional uses and retail services. Recent developments have also provided the area with mixed use buildings comprised primarily of a combination of multi -family residential and professional offices. Residential The Study Area presents a full array of housing types ranging from single family estates to large, multi -family condominiums. There are 26 single family and approximately 10 duplex housing units. The average house was built in the. -early 1940's. Owner 75% of the single family homes are owner - occupied in the Study Area. There are more than 800 apartments and condominiums in the study area. Many of the condominiums are found along South Bayshore Drive while most of the apartment buildings are along Tigertail Avenue. Hotels Along South Bayshore Drive, there are three hotels which provide a total of 520 hotel rooms. Mayfair III, when completed will add another 180 rooms on its upper floors. Retail Most retail services in the area are found in the Village Center. Within the Study Area boundaries the largest concentration is in Mayfair which has almost 200,000 sq. ft. of retail area. Other consumer services are found along the Mary Street, Oak Avenue, Grand Avenue and McFarlane Road portions of i the study area. Offices Currently there are five office buildings within the boundaries of the study. The largest is the 15 st: ry Grand Bay Office Plaza. Collectively, W ai J`�, �i�.. ,�;,� _ 6 � �?��?'�, i"r��i�'•.'„�.t"s`?$�cx1`�' gsf..-a °,rt=-� , f „ _ . ..a.. , ..... ., fi i,"i t a -RR_ the five buildings provide almost 400,000 sq. ft. of office space. Government/Institutional Several parcels in the study area are designated as "Government/Institutional" including the Coconut Grove Public Library, the U.S. Naval Reserve Center and the Community Club/American Legion Post. Traffic Within the study area, there are four heavily traveled streets with service levels of E and F during rush hour periods. Much of the congestion is due to new development along Old Cutler Bay and Brickell Avenues as commuters elect to cut through the Grove on their Journey to and from work. Existing development within the Study Area contributes only a portion of vehicles along South Bayshore Drive, Grapeland Blvd. (SW 27th Avenue) McFarlane Road and Grand Avenue. QD While there has been some vehicular ,p overflow into the. adjacent residential streets as a result of the high 1r amounts of traffic, none of the G residential use streets have reached their designed capacity levels. Environmental Conditions The Study Area has many characteristics that make itself unique to the Grove not the least of which is it's natural environment. The Atlantic Ridge outcropping, rapid rise in elevation, dense tree masses and lush landscaping all contribute to making this a subtropical paradise. Elevations Even though the study area is adjacent to Biscayne Bay, the elevations are some of the highest in South Florida particularly those portions of the study area north of Tigertail. Most of the land in the area has an elevation of over ten feet (much of which is fifteen feet or higher). Flood Zones The South Bayshore Study Area falls into three separate flood zones. Only that portion south of and including So. Bayshore Drive is. within the 100 year flood zone which requires a first floor elevation of 11.0 feet (NGVD). A small portion of the study area is with a 10 year storm zone which requires a minimum elevation of 5.0 feet (NGVD). A large portion of the study area falls into Zone B (500 year flood), an area of minimum flood potential. 4F> 7 I ANU I ,t. '.1, . ''A ".1 l)%4l.,,-- ft., 1, 1. .., ,"1ri 1, .. , I I J, - 't"N' I " o wa al"W"s Ml I 0) mRETAIL HOTELS HIGH DENSITY RESIDENTIAL BANK 0 OFFICE El GOVERMENTAL/ INST. imMARINE RELATED PARKING LOW DENSITY RESIDENTIAL I 0 VACANT Ll rol 0 ME 4% tear, v Y i+ ��*sfln�i"t"•" r i�'lc��'..�.,�.�.,,. ;+ .,�`:#�,.A�.z�i��,3�. a �. , �:`,�..Yi vi�.._az . � s + ,.,.. � , � ... .. ... - ... - ., .. r ,.�... I Ye r � r • WN il: BAYRHORE DRIVE Environmental Preservation Districts TE s There are two Environmental Preservation Districts within the study area. One is within the Cornelia Drive area and the other is further north along South Bayshore Drive. Each of these districts have very dense tree masses. All development or tree removal within the two districts must be reviewed by the . Heritage Conservation Board. Current Economic Conditions Predominant market conditions in Coconut Grove are for office and selected retail space. Prime office space rates are currently ranging between $24/sq. ft and $28/sq. ft. Class II office space (e.g., older buildings) rates are ranging from $14/sq. ft. to $24/sq. ft. The office rental market in the Grove attracts mostly small professional offices and business firms like the Coral Way area. It has not captured the corporate office growth like that of the Brickell area. Ground floor rents for retail space in Mayfair is renting from $20/sq. ft. to $30/sq. ft. with Class II retail space renting between $12 and $25/sq. ft. 12 There has also been a relatively strong market for apartment rental space for those units ranging up to the $600 range. For those apartment buildings constructed before 1970, the average rental rate has been between $6.00/sq. ft. and $8.00/sq. ft. The asking price for high rise condominiums have been approximately $150/sq. ft. with average sizes pushing unit sales to anywhere between $250,000 to $500,000. Due to soft market conditions, the actual purchase price for these luxury condominiums has been somewhat lower. The weakest market currently is for low rise townhouse condominiums. Presant sales indicate that these homes are selling for approximately $10O/sq. ft. Sanitary Sewers According to the City of Miami Public Works Department, sanitary sewer design for the South Bayshore Drive area is adequate under existing zoning classifications. While it is possible that oapacity-related issues may surface as additional development takes place under the RO-3/6 zoning, it is,. generally and realistically assumed that some properties will not be fully ` developed to their maximum built out potential. If zoning changes are secured in the area and the higher land use intensities result in increased population densities then the sewers will most certainly prove inadequate. Any definition of public policy to control and direct growth and future private development must take into account certain 'trends that play a major role in determining what is possible, practical and desirable. Market Conditions Money follows money. Coconut Grove has become a "safe" area for investors and the momentum of current development is a strong signal that land values will continue to appreciate. Moreover, the quality of development is very high thus reinforcing the strength of commercial investment in the Grove as a long term safe harbour. Increasingly foreign investors are viewing Coconut Grove as one of the strongest markets „p in a strong region in a strong state in the world's strongest national economy. Thus the amount of money for investment in the Grove has grown exponentially while the available resources (land, buildings) has declined significantly. Office Coconut Grove has historically been a market for small professional and business offices but the emerging trend Is toward larger corporate tenants and major professional firms. As Brickell Avenue exhausts its available prime land for prestige corporate office development, there is a growing consideration of Bayshore Drive as the next logical growth area. This corporate headquarter mentality is a very different market force than small business office needs. It is no coincidence that average construction costs are, leading the Brickell Avenue office market to consider Bayshore Drive corridor as a viable alternative for prestige office development. The pressure to create high profile buildings that enhance corporate headquarter image requirements is a force that has shaped Brickell and may have to be reckoned with along South Bayshore Drive. Presently, the cost of land along South Bayshore Drive contributes almost $70.00/sq. ft. of office space. This is higher than even prime land on Brickell Avenue. Because floor rents in the Grove cannot command the same rates as on Brickell Avenue, the feasibility of developing office space _ .. .� � - .: 1.•. ., _. t.�t ^.•.. Mi�1.'i. y.-t.r..._ • ..�.. �ti.y..r r � �y,. ..Y rt _ ..rat+�.t t.r �N...,...'•.. � - .. .I M R 14 is marginal, unless . allowable intensities are increased which would effectively cut land costs for existing owners. To increase land intensities would. however, lead to a quick escalation in land values and the 'same marginal feasibility would reoccur for future land owners. The trends toward higher cost office development, higher densities and larger tenants will increase the pressure for expansion of the South Bayshore Drive office district as available land is committed to development. Retail Like office growth on South Bayshore Drive, retail development within downtown Coconut Grove is very strong, rents are increasing dramatically (tripling within the past five years), and project quality is very high. The relative lack of available land in the downtown Grove is already creating pressures for adding some retail uses to adjoining commercial areas along Bayshore. Rising retail cost have dramatically affect local convenience retail goods and services in the Grove. The need as well as the desire to keep these uses (e.g., food, drugs, hardware. sundries) as a part of mixed use development is a growing factor in market lease strategies for new office development. Even at lower rental rates than could be commanded in the Village Center, retail uses are an attractive and profitable tenant for ground level spaces that are less attractive to business offices. Residential Virtually all components of the residential market in Coconut Grove, with the exception of single family properties, have been weakened due to excessive supply, high interest rates, and speculatively inflated prices for dwellings distinguished only by their location. Current trends indicate that luxury residential units, if built, will dominate bayfront and scenic view properties. There is a marked shift, however, to smaller sized and more moderately priced dwellings as demand grows for affordable urban -scaled housing. It is unlikely, however, that land costs within the South Bayshore + Drive Office district will permit development of this type unless it is part of a larger mixed -use project. Traffic The primary cause of traffic congestion and consequent spillover traffic a ", h intrusions through low density residential- areas is rush hour work trips to and from the downtown/Brickell employment centers. Coconut Grove is simply a bypass route for traffic avoiding South Dixie Highway. While the Metrorail system offers long term hope for absorbing inevitable growth, the present trend in traffic volume increase will continue at about 1.75% per year. Within ten years, this will result in almost 20% more traffic on primary and secondary arterial roadways, even if no additional development were to occur within Coconut Grove. Along South Bayshore Drive, an additional one and one half million square feet of office development potential exists today. This additional development would add, if all office use, approximately 18,000 new vehicle trips per day to the surrounding street systems. While it is not expected that all potential development will be office use, it is likely that a majority will be. In projecting trends for traffic {o growth, one unknown will be the impact of Metrorail and expanded Metrobus j service on local trips by automobile. N It is unlikely that more than 15% of future auto work trips will be diverted to mass transportation even though feeder bus service to South Bayshore Drive from the Coconut Grove Transit Station will be expanded. The only roadway within the study area that is programmed for substantial improvement to greatly increase its capacity is 27th Avenue. . Scheduled to be widened in five years capacity of the roadway will be doubled. Other roadway improvements (i.e., Tigertail, Bayshore Drive, Aviation) will be limited to potential signalization and turning lane additions. Land Development Current trends in land development are characterized by two major deviations from historical patterns; 1) Land Assemblage and hence larger development sites are essential to optimize use of a property,, and 2) Owner/Developers are building to speculative market specifications as opposed to owner/tenant needs. Coconut Grove is characterized by small scale (though often intense) structures that often exhibit wide diversity in style, form and function. This fine grained, heterogeneous and unpredictable pattern to development lends an individualistic and reduced scale to the urban setting that many residents equate with Grove character. As parcels of land grow larger and more uniform, market demands control development. At the sametime, the scale and predictability of the built environment changes. This change in texture has consequences for the CJ 40) �� \C _ ; +�� BAYSHORE DRIVE��.�/? ��'/,��/� :??�>.. o \ �� DEVELOPMENT SUSCEPTIBILITY min U-0 F III . Ei Li Tll iu lu cc Ll go 3= —zj Q alu II 28- 8D 0 000 laER TA 91L HIGH PROBABILITY 1985 1990 4!p MODERATE PROBILI I 1990 • 000-SO FT LAND (000) - SO FT BUILDING POTENTIAt 17 THAF ,-)NI nITIC 0 4c 0 " 06 TO PE AL 8 8C--1� 14 AD EAK 10. AL E:V/C Ea I TA vu ID El a J Lol ;F 0] ZIF I 0 65 M — �ADt)'D 0 0 Lr] IC T OC OTAL .44 -080� OTAL �I o MWA H. de,A% PROPOSED WIDENING NEW SIGNAL o l IMPROVED SIGNAL LJ LEVEL OF SERVICE 40)D LEVEL OF SERVICE E-F 20840 ADT 0 GREEN/CYCLE -084 PEAK/ LOS F. V/C OL - . T.7T7A1 Lug SA°YSHORE DRIVE traditional image of Coconut Grove as B. Issue: Conversion of Apartments to well as the way it functions, who uses Office/Redevelopment? it and how it relates to adjacent areas. Carried to an extreme, the very. Policy Options: heart of Coconut Grove could become a Brickell Avenue. By forcing mixtures 0 no change of uses, complex structural groupings, . mixed use- rofessional walking' entrances, public activitiesoffice/residential MAO; 60/40, and accessibility, a different pattern etc.) and use can be achieved. extend RO to Tigertail - mixed use northside Issues - Policy Options keep RG2: General Residential increase to sector 6 (50% increase To assist in exploring the primary in intensity) issues that the South Bayshore Drive Corridor and adjacent areas are facing, C. Issue: Potential Assemblage - scale, the following chart and maps outline, environmental impact, relationship to by sub -area, a discussion of growth core? impacts and policy options to address them. Policy Options: So. Bayshore Issues and Potential 0 height controls Policy Options view corridors/scale relationships to Village Center Area design review approval - Class C A. Issue: Mary Street (scale) - walking lot coverage limitations 1b relationship to ridge line link between retail and residential activity edge on Bayshore/27th activity? residential use requirements Policy Options: 0. Issue: Future of Affordable Rental' no change Housing? . extend SPI-2 zoning district east of Policy Options: Mary mandate office use at ground level no change - wait for real estate facing Mary pedestrian amenity package - walks, cycle to return extend office use that is north of plazas, art on .01 P .1 A � _, a .s .. � ,A rt. .inmF^ �HQ'"I:ri•.kN. 2 �.A�+---.Mi •� Bird to south of Tigertail Policy Options: . mixed use/5 - mandatory residential (50/50 or 60/40 etc.), professional height controls office design reviews . mixed use/5 residential/offices, lot coverage controls local necessity retail service view corridors maintenance of ridge line E. issue: Future Relationshipof residential use requirements Neighborhood Edge to R-O? . retail service needs relationship to Dinner Key Specialty Policy Options: Center , no change H. Issue: Future of Bayshore Estates? . RG 2/4 west of aviation • RO 1/3 Residential/Office facing Policy Options: Tigertail • RG1 Duplex: facing east of Aviation no change - create/use apartments as transition F. Issue: Future of Zone Residential edge g - townhouse to neighborhood? g villastransit12nal 20/acrensity • transitional use • Policy options: resort residential - low density professional offices Zone R-0• Residential Office • • - moderate density mixed use require RG: General Residential re q office/residential 20Jacres buffer facing Tigertail. No office - extend R-0: Residential Office access from Tigertail Use Longview as transition • Zone R-0: Residential Office - require open space setback • Zone R-0: . Residential Office - GD reduce sector intensity - place 45' d� height restriction. G. Issue: Future of US Naval Reserve - Center Building Scale Bayshore edge? 400 f 8AYSHORE DRIVE 1-1 ISSUES l POLICY ' OPTIONS W 9- i .. gloat Ind m cwe+�la�..+nF�""�f"a^'^'•"^"_e�zw^'^'h++Mmmeew .. , _-r' e Am - ncr vc BAYSHORE DRIVE 11 K *%w POLICY RECOMMENDATIONS The following Planning Department recommendations address basic issues of land use, intensity, open space, transportation impacts and urban design objectives for the RO-3 South Bayshore Drive office corridor and the abutting neighborhoods: I. RO-3 District Land Use - No Change Permitted uses including office, residential, hotel, and convenience retail uses are appropriate and should not be expanded to include general retail uses. The function of the district as the core area of Coconut Grove for high density office and residential should remain. • Intensity/Floor Area Ratio - No Change The present sector number of 6, FAR 1.21 should not be increased. A bonus increase of up to an additional .50 FAR for any use to promote private provision of public parking for Dinner Key should be included as per City Commission adopted policy for the Dinner Key Master Plan, (October 19, 1984). The prevailing scale and open site design of recent development as well as constraints of traffic congestion and limited utility capacity demand that the base floor area ratio of 1.21 not be increased. Of equal Importance is the relationship of the RO-3 district to surrounding development areas and neighborhoods and the critical development proportion and transition between them. To increase the base sector number and permitted intensity of the RO-3 district would mean direct and significant pressure would be placed on surrounding areas to absorb similar zoning increases. This ripple effect of zoning increases would magnify the adverse impacts of growth on adjacent low density neighborhoods in particular and community support infrastructure in general. f1 Height Controls - Limit to 22 stories Several large development sites remain within the RO-3 district and with only present setback and light plane limitations (no direct height limits in effect today), new high rise development projects along Bayshore Drive could reach heights of over forty stories. Development of such scale would completely dominate approach. vistas along Bayshore Drive, 27th ` Avenue, Grand Avenue and Main Highway and numerous local residential streets., The present scale relationships between: high rise projects along Bayshore Drive " and adjacent areas are acceptable and should not be exceeded. Current development does not exceed 250 feet above average grade and this should be the absolute limit for new development. riMs� �� Ea sq- �,�..r t... � r,`x Y ..'e^s T : s .:'A� v n 'S,"`."�jf. f7 man• +Y va•' t ;[ �� # t�� sy.; x r �f .s1�'Sr,•S`Cc- -":v� Ke, SW I I III' I I�, I I. I,ii � I it ,:; y ��•?�}_ �" a y ?d.;� '''� ` � - * _ .. r n I i r i i III � - � � � , 4.� ,V :- �.�'., t, s...+ J e �..j �{#.•�• ; ,,i' ,V'i n.N. `. _ _ III I� I ■ I� 7�ay L� .1 .r�}� D : a �� . �{Z ;+. Transition edges -Residential along_ Tigertail Avenue, open views to Bayshore Drive, and retail linkage to Mary Street. Special development design and use transitions to adjacent neighborhoods should be made to assure compatible and harmonious relationships between adjacent districts. The first 100 feet of lot depth from the south side of Tigertail Avenue should be preserved as ' either undeveloped landscaped open space or preferably as townhouse scaled residential units not over forty five feet in height. This policy should apply to the entire length of Tigertail from Mary Street to just east of Aviation Avenue. Along Bayshore Drive, the recent history of development turning blank retaining walls and parking garages toward Bayshore Drive should not be permitted. Major vehicular and pedestrian entrances should be visible directly from Bayshore Drive with primary buildings setback thirty feet from the base building line to provide landscaped plazas as an amenity facing Bayshore Drive. Along Mary Street, where the RO-3 district shares a development edge with a designated pedestrian street bordering the central grove commercial district, a retail use transition is desirable as well as a height limit. From Tigertail Avenue south along the east side of Mary Street, there should be required retail uses at ground level and a height limit of fifty feet within 100 feet of Mary Street. RO-3 Boundaries - Limit to Tigertail Avenue on the North and facing Properties on Aviation Avenue to the east. . In recognition of prior zoning changes and the precedent they establish the RO-3 district should maintain a uniform boundary -along the south edge of Tigertail Avenue from Mary Street to 150 feet east of Aviation. This should occur only in conjunction with the residential townhouse transition policy discussed above. • Open Space/Environmental Preservation Secure Naval Reserve Center for Public Use/Protect exotic hammock along Cornelia Street/Protect Housekeepers Club. The United States Naval Reserve Training Center holds much potential for public use, in particular as a much needed working center for the fine arts housing rehearsal, classroom, studio, and workshop space for local South Florida cultural groups. The 40 . a .. .r, y1,7... •,�,N�>1�•.. v+, � . y� • i .. _� t7:,ir i�: 1 �! _ of .�•. ., .'��' 1' �. ..7 �� r?,. dl.v � � � .�. ;PHOPOSEC LAN13 11AF ;:r P im 34" 0 �i,nor, 27 i` .: ...ten . , ., .. - - . . i'�1 r f:.4V.:.::t ow PON NGSED II I IEn II II I nL6tb3�Tr��{�F��I /i� \\p7-// Im. I I rt .r 11 1..1.- —a .. r.y r.rwvrr„ • !-,. nr a,. . , ; - — r., a 1. .,. , . r .rn :.p....Vop", r xfa.v .. ,m,. . . >.. .. . . . r . 9 17 V.11 BAYSHORE DRIVE opportunity to link such working center with a small performing center across Bayshore Drive in Dinner Key is unique and quite possible. In addition, as an open space.reminiseent of the scale and grandeur of historic Bayshore Drive Estates, the expanse of- lawn rising te% the crest of the coastal Atlantic ridge line will become a rare and welcome counterpoint to the high density, high rise .projects along Bayshore Drive. Public efforts to gain title to this property after federal military uses move should be a high priority for the City., The designpted environmental preservation district along Cornelia Street represents not only a mature and substantial stand of hardwood trees, but within this district along the west side of Cornelia Street exists a rare collection of exotic tropical trees and shrubs originally collected and planted by Mr. Brown McClellan. It was his desire to protect and maintain this private arboretum for public enjoyment that led to his donating this property to Fairchild Tropical • Gardens. Although it is now in private ownership, the use of transfer of development rights, easements and/or special dedications should be pursued by the City to maintain this unusual and irreplaceable open space. an At the intersection of McFarlane Road and Bayshore Drive, an open lot and oak grove remains as a front yard for the historic Housekeepers Club house next to the Coconut Grove Library. If the Housekeepers Club were ever to relinquish this site, it should remain as public open space. The potential exists for this property to serve as a relocation site of last resort for endangered pioneer homes such as the Albert Peacock home and the Trapp estate (once located in Peacock Park). • Design Review - Class C Permit required for all new developmenf . To better coordinate public objectives related to above listed design did preservation policies and private development plans, a Class C'permit for design review by the Planning Department should be required. Currently, RO-3 Bayshore Drive area is the only commercial development district in Coconut Grove that does not have design review. U. Bayshore Estate Area Zoning - Downzone developments adj, family estate RS rom - - . estates west o existing condominium cent to the single .1 district to RG-2/5 Rezone undeveloped )ngv ew from Rom. 1T1' t TM is 8 I ..>, R to RS-2/2 single family residential and encourage Planned Development Housing projects. The two existing condominium developments, Bayshore Park and Harbour Hill east of Aviation Avenue should be rezoned from high density office use to a district compatible with its present use as moderate density residential, (RG-2/5). This rezoning would in no way effect the continued existing condominium use of these properties but would serve to establish the principle and application of a transition between high density office development and low density neighborhoods to the east. The rezoning would also separate the condominium property from increasing land values in the RO-3 district and thereby protect them against rising land value assessments for property taxes. The estate residential area east of Harbour Hill up to Longview Estate is a prime redevelopment area. To protect adjacent residential areas to the east and north, these vacant estate properties should remain low density residential but need not be less dense W than Longview development. A rezoning of these estate properties west of O Longview to RS-2/2, single family residential with the policy endorsement of Planned Development. Housing as a development approach is recommended. The P.D.H. process would allow needed flexibility in preserving existing historic structures and observing the Bayshore Drive special scenic yard setback. IV. 27th Avenue Area With the widening of 27th Avenue to a four lane boulevard (see transportation recommendations) and the economic decline of older apartment structures between Bird Avenue and Tigertail Avenue mounting pressure for redevelopment along 27th Avenue requires consideration of mixed use projects to stimulate renewal. Due to limited opportunities for multifamily housing development in Coconut Grove, and the critical need to a assure that as existing moderate cost rental apartments are lost, they are replaced with smaller affordable housing units, it is recommended strongly that housing remain a priority use on 27th Avenue. By linking housing to stronger office and commercial development opportunities, the likelyhood of achieving affordable residential redevelopment is enhanced. By retaining the RG-2/5 zoning but encouraging the application of Planned Development mixed use projects, the existing housing is protected against wholesale conversion to office use and new projects can be guided to achieve desired mixes of office and retail uses with emphasis on housing. r] �� „ , � t� , .� v.. .. - - . ..-Y• ,• , •r+..• p..,t•say.y ��•4-� Ma...'!�X+r.p'W Mw^.Orr►(.'1�►ArM►R,�••'Mxvt+�'�n •I.f/Ar►w �HM•ACI �)w`+tln�1RN+,�71h1'ftMyY7MlMN�="Uw/1Rf den �tvK+ntVrAf'Vw�"'!'1 •++h�rr-fit .w,..r•v kf %�'�r tr., •..�,.� .... .�.: ,',•r = � fIL 1 W _ L ffC7. 7An•�: :�I�f:� ►Illllllllbf go ►u� r r s _. ��; rl�i MZJ ha M J i 1 � � Y-. IY.r..ybto Mi .AY' • .Mtl+i R•bK•fR - x�.w i,. v • . . i.�, Y •.� , ,-f' •Y r•.. W I� "�'1X),IY•�•! 1 ��t•tt.�va N...M,�• h.�E K• _.__-r'►111 swr+;.YNR1l a•Y+i dVT v, k.",., H►;, eti,re r r "n.a ..1 .•,.1 . 'i'm W!Wj -, �� ! t "I . P, �I I LlA:- kt,41 I L, 4 rl lk XON., �Vll 2 R -,,ME IME Room wlwffi� BAYSHORE DRIVE V. Transportation Bayshore drive - Signalization and turninglmerging lane improvements. Due to the heavy and increasing volumes of traffic on .Bayshore Drive, the intersection at Aviation Avenue will require signalization, particularly when the proposed Dinner Key Specialty Center at that location opens. In connection with the signalization, it will be necessary to extend the two northeast bound traffic lanes through the intersection with a merge lane extending to the vicinity of the Biscayne Yacht Club. Tigertail Avenue - Signalization and improved intersection geometries. The intersection of Tigertail and Aviation Avenue is extremely dangerous due to high traffic volumes and speeds on Tigertail Avenue an its offset alignment at Aviation. This intersection through the intersection and adding turning lanes. .L 0 27th Avenue - Widen and Landscape from U.S. 1 to Bayshore Drive. Long overdue for improvement, 27th Avenue is in need of four lanes to handle Bayshore Drive and Diner Key 34 traffic connections to U.S. 1 and the Coconut Grove Metrorail Station. As the primary entrance to Coconut Grove, 27th Avenue should be designed to the same standards as Bayshore Drive with generous landscaping along both a medium and side parkways. This improvement, currently scheduled for 1989 design by the County should be advanced to a 1986 design and bid schedule with construction by 1987. • Cornelia Drive - Partial Closure and pedestrian linkage to Mary Street. In the heart of the largest redevelopment area (10 acres) within the Ra-3 district, Cornelia Street exists as a narrow, little used vehicular connection between Tigertail Avenue and Bayshore Drive. Cornelia Street, should be protected as a convenient and lovely tree shaded pedestrian connection linking. the Tigertail multifamily apartmeszt district with Dinner Key. By allowing a cul-de-sac of Cornelia from both the Tigertail and 27th Avenue ends and creating a pedestrian plaza in the intervening portion, the short-cut use of the street by automobiles can be eliminated. If it is possible to achieve the protected tropical forest bordering Cornelia Street proposed above, the waking street along Cornelia 77777 . �{,�Fk 3:• 4 %.yYUSt�u j Ake. 'k k5 � r+?. - � s.. i or, t-f�� C4 can be connected through the forest to an urban plaza at the intersection of Mary Street and Tigertail Avenue. This would join through a varied and intersecting pedestrian walkway system the core of the 10 acre redevelopment area and the Florida Avenue center of the Village retail district. a A r '��' ,�l�IE.hJUE� IMPRt�YF.NI�NT 35 BAYSHORE DRIVE Below please find a brief summation of those comments shared by area residents and/or property owners in reference to preliminary findings of the Planning Department's South Bayshore Drive Development Study. Speakers have been identified whenever possible. 1. Traffic Problems/Intent of RO districts. r. Stephen Cooke -Yarborough 3555 Crystal Ct.) said that the traffic problem is becoming unbearable and any additional development along South Bayshore Drive will only exacerbate the problem. He also said that the high rise development currently taking place in the area is contrary to the intent stated in the Residential -Office section of the Schedule of District Regulations of Zoning Ordinance 9500. 2. No artificial demand is being created. realtpr with Coc rove Realty said that there was no artificial demand being created through rezoning but rather there was real economic pressure forcing such change. • 3. Loss of Essential Services/Don't Let the Grove Close at 5:00. Dale Moble3(RiceStreet) expressed his concerns about creating another ll which closes at 5:00 when people leave the APPENDIX office. Hea was was also concerned that the Grove is losing essential services and fequested that some type of retail bonus be established. 4. Rezoning Creates Economic Pressures. Paul o ns U232 Lincoln venue said leaving parcels zoned as they currently are would curtail economic pressures. He feels , that we are rezoning too much too fast which only encourages additional rezoning applications. Mr. Collins also feels that Commodore Bay would compete with So. Bayshore. 77 79 5. Who's More Im ortant: -Residents or Developers? S-arry Feliman (2539 So. Bayshore Drive) said that the fundamental problem seems to lay with "the planning process" regarding a fair balancing of those who live in the Grove vs those that just want to develop. He thinks the residents, opinions should carry more weight. 6. Limit High Rises to So. Bayshore Only. advocate height One resident did not object to hi rises nor limits along South Bayshore Drive but he did feel that this type of development should not be allowed to invade the single family neighborhoods. He also said that the traffic problem was not locally generated but rather a result of South Dade residents commuting to Brickell. 7. More Pleased Than Ever, Protect Residential Areas, Require Ample Parking. I -gentleman who has lived in the Grove for the past 36 years said that never before has the Grove been so open in terms public amenities and new offerings he did, however, request that all new development provide ample parking and that the single family neighborhoods be preserved. 8. Wha't AlternativesCanAlleviate Traffic? One gentleman requested that the Planning Department consider vehicular alternatives, aside from large diesel busses, that would assist traffic flow. r]