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HomeMy WebLinkAboutAnalysis and MapsCITY OF MIAMI PLANNING DEPARTMENT COMMUNITY PLANNING DIVISION Comprehensive Plan Amendment Staff Analysis File ID ePlan ID: PZ -18-263 Applicant Miami Produce Center, LLC Location 2140 NW 12th Avenue, 1243 and 1215 NW 21 It Street Folio 01-3126-066-0010 Commission District District 1 — Commissioner Wifredo (Willy) Gort NET District Allapattah Size Approximately 8.25 acres Planner Jeremy Calleros Gauger, AIA, LEED AP Miami Produce Center, LLC, (Applicant) has applied to amend the Future Land Use Map (FLUM) of the Miami Comprehensive Neighborhood Plan (MCNP), adopted by Ordinance No. 10544. The Applicant has proposed to change approximately 8.25 acres located at 2140 NW 12th Avenue, 1243 and 1215 NW 21St Street' from a future land use (FLU) designation of "Industrial" to "General Commercial". This process is pursuant to Policy LU -1.6.4 of the MCNP and the proposed amendment is subject to small-scale amendment procedures established in Section 163.3187, Florida Statutes. This request accompanies a concurrent application for change to the Miami 21 Zoning Atlas to change parcels from D2 to T6-12-0 per the accompanying regulating plan and development agreement. The request is being submitted through the Special Area Plan (SAP) process. The ePlan ID for the companion item is PZ -18-126. The Neighborhood The proposed FLUM amendment is in the Allapattah neighborhood with the broad boundaries shown in the location map, Map 1, which shows the location within the Allapattah Neighborhood Enhancement Team (NET) area and City Commission District 1. The immediate vicinity of the Subject Site is shown in Map 2. Abutting the site are NW 22nd Street to the north, NW 12th Avenue and Metrorail to the east, NW 21 It Street and a Metrobus station to the south, ' A single folio number (01-3126-066-0010) is provided for all three addresses. and NW 1311 Avenue on the west bound the site. Warehouses and distribution centers of an industrial character border the West, North and East. The Santa Clara Apartments and Metrorail station are on the south. Major neighborhood features beyond the immediate vicinity include the nationally important Health District on the south and the single-family residential portion of Allapattah to the north. The site is within a continuous stretch of industrial land which stretches adjacent to the historic Florida East Coast spur lines and Miami River. Industrial lands are in a belt from beyond the city limits to the west and historically beyond 1-95 to the east into Wynwood. This continuous stretch is the bulk of industrial land in the city. Neighborhood Map of Miami, Focused on Allapattah Map 1: The aerial image above is overlaid by neighborhoods in the City of Miami. The Allapattah neighborhood is shown in purple with the Subject Site outlined in green -blue. The site is within a quarter -mile of the Veteran's Administration (VA) Hospital on the northern edge of the Miami Health District. The VA Hospital is one of 18 medical institutions within the nationally significant Miami Health District ("the District"). The District is a major center for high, medium, and low wage jobs. Private research facilities have recently been added in the form of the Life Science and Technology Park / CIC. The urban fabric in the area was built without orientation to the public realm—a very stark distinction of the Health District where building facades tend to open up to back -of -house areas and parking lots and not to public rights-of-way, namely sidewalks. Moreover, major government service areas of an industrial character are between the applicant site and the Health District, making the area difficult to traverse for those attempting to do so without an automobile. An approximately 20 -acre City facility serves as heavy vehicle parking and maintenance, equipment storage, and other service uses. Miami -Dade County water storage tanks and a solid -waste transfer station are to the east of the City facilities. The industrial facilities create a daunting pedestrian environment between the Subject Site and the Health District. The aerial image below shows the site and its relationship to the surrounding vicinity. 4 Aerial Photograph of Subject Site Map 2: The aerial image of the Subject Site (outlined in blue-green) shows features of interest in the surrounding vicinity. The surrounding area is predominantly industrial in character. Heading south on NW 12 is the Health District. While the map shows a gridded pattern, the urban design of the area has resulted in many of the buildings having the rears of their buildings facing the public realm and main entrances only accessible from parking lots behind buildings, or through campus ways out of the public right-of-way. Few of the many significant destinations are easily reached without a car. Existing and Proposed Future Land Use Designations The Applicant proposes changing the current FLU designation from "Industrial' to "General Commercial". Broadly, this is a change from a specialized district devoid of residences to a district permissive of multiple uses and allowing high residential density. Existing FLU Designation: Industrial The Industrial land use designation allows manufacturing, assembly, and storage uses that may create noise, smoke, fumes, illumination, traffic, hazardous wastes, negative visual impacts that are detrimental to non -compatible commercial and all residential uses. Stockyards, rending works, smelting and refining are excluded. No residential uses are permitted (except live -aboard berths on moored boats where applicable) and the designation does not allow residential density. A floor lot ratio of 8.0 is allowed. Proposed FLU Designation: General Commercial The General Commercial land use designation is one of the most permissive designation categories. Allowed uses include those compatible with surrounding Industrial designated lands including wholesaling and distribution activities serving other businesses which require loading. Example uses identified in the MCNP include retailing of second hand items, automotive repair services, new and used vehicle sales, parking lots and garages, heavy equipment sales and service, building material sales and storage, wholesaling, warehousing, distribution and transport related services. In addition, light manufacturing of a scale of operation and land use impacts similar to commercial uses listed above are allowed. 3 In addition to industrial -like uses, all uses allowed in Restricted Commercial are allowed which include broad residential and commercial uses. High Density Multifamily Residential uses and densities are permitted: 150 units per acre are allowed including transitory uses. General office, clinics, auditoriums, libraries, convention facilities, places of worship, retailing and service needs are all permitted. Floor Lot Ratios of 7.0 are allowed for non-residential uses and may be increased up to 11.0 upon compliance with detailed provisions of applicable land development regulations. The FLUM with the current designation and proposed designation is shown below. current and Pro LJGNT INDUSTRIAL NW 22ND ST NW 21ST ST RESTRIG MERCIAL �i _0 NW 20TH ST LIGHT INDUSTRIAL Map 3: I-uture Land Use Map (Current) FLU Designations LIGHT INDUSTRIAL WDUSTRULL . [L NW MID ST i t NW 21ST ST RESTRICTED COMMERCIAL ❑ r_ t I: C: YZ�i1:4Y1 LIGHT INDUSTRIAL Map 4: Future Land Use Map (Proposed) Site in Context: Quarter -Mile Study Area To study the area a %4 -mile study area was created from the edge of the Subject Parcels of this proposped FLUM amendment. The total area created by the study area measures 204 acres. The first observation from this study is that the study area contains a high quantity of three FLU designations which are generally scarce throughout the rest of the City: Industrial; Light Industrial; and Major Institutional, Public Facilities, Transportation and Utilities FLU destinations—over 60 percent of the study area is composed of these three designations compared to less than 15 percent of the entire City. FLU designations that the City has in abundance but which are scarce in the study area include: Restricted Commercial and Single Family -Residential. To be sure, the pattern of land use within the study area is clearly of an industrial nature. To compare the distribution of FLU designations within the study area to those Citywide, Table 1 below summarizes the requisite breakdowns. 4 FLU Inventory for the 1/4 -Mile Study Area, with Comparison to the City: Study Area Miami Produce SAP Study Area ST_ _ _ -- Citywide Study Area a . YV. NTH Acreage, Land area %, Acreage, Land Area FLU Designation Citywide Citywide Study Area Study Area Low Density Multifamily Residential 39 0% 6 3% Low Density Restricted Commercial 144 1% 0 - High Density Multifamily Residential 165 1% 0 -- , Central Business District 199 1% 0 Conservation 289 1% 0 - Industrial 459 2% 63 31% Light Industrial 534 2% 31 15% Medium Density Restricted Commercial 896 4% 0 - General Commercial 945 4% 14 7% Public Parks and Recreation 1,315 6% 0 - Medium Density Multifamily Residential 1,487 7% 0 - Major Institutional, Public Facilities, Transportation and Utilities 2,103 9% 47 23% Restricted Commercial 3,736 17% 8 4% Duplex -Residential 4,002 18% 34 17% Single Fomily-Residential 6,197 28% 0 TOTAL 1 22,510 100% 204 100% Table 1: FLU designations Citywide and within the study area. The geospatial distribution of these uses within the study area is observable in the map below. Industrial and Light Industrial FLU designations are purple and light purple and Major Institutional uses are light blue—the yellow swath along the north is the Duplex -Residential designation (17 percent of the study area land use). Miami Produce SAP: Existing Future Land Use Designations within a 114- Mile Study Area --------- - 1 ST_ _ _ -- _- pI/l STN TT _ 251N ST II \� a . YV. NTH W i^J \ I r I FW WR LanO Uq DatlprtaW na I � _ r. �nhRV R�ssOCmrau� I c _ NII HI/ n�YkaL. ryp1� itlata -- , Map 5: Distribution of FLU designations within the study area. 5 Industrial, Light Industrial, and Major Institutional FLU designations are scarce in the City of Miami, making this application remarkable for the abundance of these FLU designations and uses. Low and Moderate Incomes within the Quarter -Mile Study Area Census block group data from the 2010 Census show the majority of the area's population are of low to moderate income as shown in Map 6 on this page. Area Median Income (AMI) is a statistic determined by the Department of Housing and Urban Development (HUD). This statistic is established for the entirety of Miami -Dade County. Currently, AMI is set at $52,300. Based on this AMI, income limits for low to moderate income are $26,150 (low) and $41,840 (moderate). Median Household Income for the City of Miami is $33,999 based on the American Community Survey, 5 -year Estimates (2013-2017), released in December 2018. Staff note that the Santa Clara Apartments, abutting the site, provide 208 income -restricted housing units to the community, enabled by LIHTC credits that were allocated in 2004. This means the affordability restrictions expire in 2033 and the units have the option of becoming fair market in 15 years. This Census Tract is further distinguished by HUD as a Difficult to Develop Area, or "DDA," meaning that costs for construction, land, and utilities are high relative to Area Median Gross Income (Office of Policy Development and Research, 2019). Map 6: For the entire study area, 50 percent or more of all individuals are considered Low -to Moderate -Income by HUD. When HUD designates a Census Block Group as "Low - to Moderate - Income," that means over 50 percent of individuals living in that area are found to live at Low or Moderate ranges of AMI as of the 2000 Census Less than a quarter of the study area has FLU designations that allow residential uses (Low -Density Multifamily Residential (3 percent); Duplex Residential (17 percent); and Restricted Commercial (4 percent). Census data of the study area show a high preponderance of poverty among those residents in the area, as observed in the map above. The Planning 0 Department further investigated the rate of homeownership among the residents living in the study area. By observing that the study area has a high preponderance of poverty, Planning staff further posits the question about the risk that a change to the underlying Future Land Use designation may have for dislocating residents. This risk may come through gentrification—the process of redevelopment over time as neighborhoods change. Though research mixed establishing causality between involuntary tenant displacement with neighborhood redevelopment, low - and fixed-income households that are renting are much Owner -Occupancy and Tenancy in the Study Area Number Properties with Homestead Exemption (OWNER -OCCUPANTS) 117 37% Properties without Homestead Exemption (RENTERS) 197 63% TOTAL 314 100% more sensitive to increases in property values, and thus rents. Local NPR affiliate, WLRN is studying gentrification in Miami with two stories focusing jus on the Allapattah neighborhood. Overall, the narrative suggests that speculation in disinvested neighborhoods pushes up prices, which forces long-standing residents away, (WLRN, 2019). The study area has a low percentage of residential uses; however, of the improved properties in the area that are residential, roughly two-thirds of these properties are rented. While the redevelopment of an area provides the City a number of beneficial outcomes—chief of these being an increase to City revenues at the time of construction from permit fees, impact fees, and after buildout through ad valorem taxes. These are well-documented in the Economic Miami Produce SAP Study Area: Owner -Occupancy and Tenancy ------------ ----I= 15 �— IZ 1� b t t R�gen�al dspotnnn ij— _ R sw ` FSO IIS �,��------- a O� o, oz Wn Map 7: Geospatia/ distribution of owner -occupied and tenant -occupied residences within the study area. Analysis provided by MEAT Associates, dated June 14, 2018. However, the Planning Departments notes that there are considerable concerns about displacement throughout the Allapattah area (WLRN resources). For residents who do not own their homes, the threat of dislocation seems more ominous. The map below provides a geospatial analysis of owner - occupancy and tenancy in the study area. Commentary There are several implications brought by the large area and drastic change in allowed uses brought by this application. 7 • Industrial Land Loss: implications of this proposed change to the FLUM in context of overall trend of industrial land conversion in the city of Miami. • Transit Oriented Development creation and benefits of introduction of high- density mixed-use development adjacent to Metrorail • Project Connectivity with creation of a self-sufficient area and implications for connectivity to surrounding areas Industrial Land Loss Small scale manufacturers also known as "makers" are a significant source of high paying jobs (22.9% higher than average) per studies by Lester, Kaza, and Kirk (Making Room for Manufacturing: Understanding Industrial Land Conversion in Cities, 2014). Retention and creation of high -paying jobs could significantly offset the disparity between wages and housing costs that make Miami one of the least affordable cities in the nation. Miami has a large proportion of "severely" cost -burdened households pressed between high housing costs and low wages per The Dynamics of Housing Affordability in Miami -Dade County (Kevin T. Greiner, 2017). Loss of dedicated industrial land could limit potential of expansion of this beneficial job sector. The large demand for conversion of older, industrial sites into commercial, residential, or mixed-use land is well documented nation-wide (Chapple, 2015; Leigh, 2012). Successful and attempted conversion of industrial land to other uses is also well-documented and anecdotally confirmed by recent land -use changes in Wynwood, Little Haiti, and Mid -town Miami. While conversion of Miami industrial lands has recently emphasized the retention of light -industrial uses available in the General Commercial category, the increase in land value associated with residential density and new varied uses likely precludes new manufacturers from originating in these areas. The Miami Produce SAP's retention of industrial buildings on-site and proposed industrial scale architecture may further incentivize retention of industrial uses and should be monitored. Transit -Oriented Development Encouraging transit -oriented development is priority within the MCNP due to the myriad benefits, including: reduction in traffic, reduction in commute times, and disproportionate benefits to city tax -base over lower density development. The benefit to transit ridership of increasing density near transit stations is well documented. Increases in residential density are beneficial (Puget Sound Regional Planning Council, 2015). However, high employment density is most beneficial to transit ridership (Kolko, 2011). In all cases, mixed-use development is beneficial with an emphasis on high density. Differences in transit utilization at the adjacent Santa Clara and Civic Center provide evidence of the difference in land -uses impact on transit. Per September 2018 data from Miami - Dade transit, Santa Clara ranked 23 of 23 stations with fewer than 1,000 daily riders. The Civic Center station serves the Miami Health District and ranks 5 of 23 stations with greater than 5,000 daily riders. Current conditions of relatively low-density employment in the warehouse and distribution district around Miami Produce contrasts with the high-density employment in the Miami Health District. The top ranked stations for daily ridership within the City of Miami for the County Metro -Rail system are Government Center (1 overall), Brickell (3), and Civic Center (5), (Miami -Dade County Transportation and Public Works, 2018). Both Government Center and Brickell are surrounded by dense, mixed-use development. Creating similar land use conditions E-3 allowed by General Commercial at the Miami Produce site should be positive for Metro -Rail ridership and the City. Project Connectivity At the pedestrian scale, Miami Produce SAP will create a mixed-use development relatively isolated from other areas with either commercial or residential density. Adjacent surrounding industrial and major public facilities act as barriers to pedestrian connectivity to the Miami Health District, Wynwood, and residential areas to the north. Improving connectivity between the Health District and surrounding areas is identified as a priority in the 2012 Health District Bicycle Pedestrian Mobility Plan (HNTB, 2012). Proposed improvements include providing long-term bicycle facilities, low speed roadways, and complete streets. Traffic calming on both 20th street and 12th avenue and on -street bicycle parking on those streets are specifically proposed. While most identified projects in the Mobility Plan are on the dense south side of the Health District, 12th Avenue is recognized as a major corridor connection. At the design phase, Miami Produce SAP should emphasize Complete Streets to encourage bicycle and pedestrian connectivity on adjacent streets to overcome current limitations of the surrounding areas which are recognized in the TPO Mobility Plan for the Health District. By implementing as many recommendations from the Mobility Plan as possible, the applicant will improve immediate connectivity and better meet future needs in a changing area. Land assembly and recent transactions suggest that the area around The District will be redeveloped as a mixed-use area with residential components soon. In addition, Jackson Hospital will be undergoing 1.5 billion in improvements which will include significant exterior and public facing work (Chang, 2018). Economic Analysis The Applicant supplied an Economic Analysis of the SAP project conducted by Miami Economic Associates, Inc (MEAT), dated June 14, 2018. This report focuses on estimated economic benefits anticipated from this project as well as select fiscal benefits with no estimation of fiscal impacts. The construction of the project is estimated to create a little over 5,500 jobs, generating a little over $3 million dollars in income, total. Without defining the development period, if that time is two years, that amounts to an average salary of $26,502 per job per year. If the development period is three years, the average salary is $17,688 per job per year. In either scenario, the average salary is far below the City Median Household Income of $33,999 per year. At stabilization, the project is expected to support 1,482 Full Time Equivalency jobs (or the equivalent of those full-time jobs). Seventy-five percent of the retail and restaurant space is expected to be occupied by the food and beverage industry. The analysis for the jobs created in food and beverage, hotel and related industries allows for the fact that considerably more than 1,482 people will work for employers at the Allapattah SAP due to the fact that the majority of these jobs are part-time jobs. The total income expected for these workers comes to $113 million per year. The Bureau of Labor Statistics has shown that jobs in hospitality and service sectors all pay below the City of Miami's median income. Due to the fact that the analysis does not reveal the proportion of workers which are expected to be actual, full-time workers and which are full time employed, Planning staff have not endeavored to average the total estimated salary to be derived from all jobs at stabilization since there are considerably more jobs than workers at stabilization. 9 In its assessment of housing, the study estimates that, at stabilization, the project will provide several units (all of them 1 BR) for workforce housing at 140 percent of Area Median Income (AMI). With the local community living well below this standard, this standard assumes that residents will be moving in from other communities to occupy these units because the local community lives at far below the AMI. The study estimates that the city will derive $8.3 million in impact fees and $4.8 million in park impact fees while the County will receive over $15 million between road and school impact fees. At stabilization, the project is expected to generate around $8.3 million in ad valorem taxes, with the city receiving around $3 million of that. The study did not take any consideration the impact onto public infrastructure so to estimate fiscal impacts. This is to say, while the City will see a rise in tax revenue and it will be the beneficiary from impact fees, the attendant costs that come from increased population and activity on stormwater facilities, trash collection, roads, etc. are not factored into the analysis provided with this study. W �� alfn,, L Pro d ui e The Applicant's Letter of Intent states that this amendment to the Comprehensive Plan supports Policy HO -1.1.9, Policy LU -1.1.11 that encourage high-density residential development and redevelopment in close proximity to Metrorail and Metromover stations. Moreover, the Applicant references HO -2.1.5 in which the City promotes regulations encouraging the adaptive reuse of commercial space for residential use. The location of the application proximate to transit and by virtue of proposing a change from and Industrial FLU designation to a General Commercial FLU designation, has real-world application when anticipating the project implementation on the site. The Applicant is proposing co -housing units in the regulating plan, as part of the companion item to this application. With that proposal, 600 units are anticipated to have four "units" that are part of individual "co -housing" units, each which share bathroom and kitchen facilities. For this reason, each of these has been assigned a density of 0.25. According to the Bureau of Business Research at the University of Florida (BEBR)2, average household size in the City of Miami is 2.81 persons. To assess this project with an eye toward concurrency, staff assigned a person -per -household to each co -housing unit of 1.5 persons. To analyze the proposal for impact, staff compared the Subject Site's base density and residential population under the following assumptions: 1. With the Industrial FLU designation assuming no co -housing units (2.81 persons per household at 8.25 acres, 150 du/ac); 2. With the General Commercial FLU designation, assuming no co -housing units, assuming full build -out of the 8.25 acres with 2.81 persons per household, 150 du/ac; and 3. With the General Commercial FLU designation, assuming 600 co -housing units at 1.5 persons per household and 637 standard dwelling units at 2.81 persons per 2 This is the institution under contract with the Florida Legislature to estimate population and provide related data (such as persons -per -household) for the State of Florida on all years between Decennial Censuses. 10 household, assuming a scenario in which a 100% density bonus applies (under applicable LDRs, this application's proximity to transit qualifies it for this density bonus). In this scenario, the SAP project scenario is fully applied, assuming a cap of 1,237 dwelling units. The table below summarizes the scenarios. Table 2: Analysis of proposed density using scenarios as outlined above. Table 2 above breaks down the residential population counts under each possible development scenario allowed through the existing and proposed Future Land Use designations. As shown above, the highest possible impact to residential population comes from the development of the property under the proposed "General Commercial" designation combined with a 100 percent increase in allowed density through Ordinance 13666, which would yield a total residential population of 6,954. Under the development plan, as detailed in the Letter of Intent and the Concept Book, the total residential population would be 5,389, well below the highest possible population. Commentary: Density for Co -Housing (0.25 du) and Workforce Credit (1 du) Planning staff have agreed to assign each co -living unit a density of 0.25 a unit. In the above scenario, at build out with base density of 150 du/ac, the build out will result in a total of 1,237 dwelling units (600 co -housing units + 637 standard units). With the co -housing arrangement, 600 units with four rooms, each having density of 0.25 results in 2,400 rooms (for the co -housing unit portion). Each room in these co -housing units is designated as a workforce housing dwelling unit by Section 18 of the Applicant's Development Agreement. Thus, the same 2,400 "workforce housing units" are counted as merely 600 dwelling units for density. The image below illustrates the incongruity. 11 Analysis of Density in the Subject Site under Different FLUM Designations and Co -Housing Scenario General Commercial + 100% Density Bonus allowed by Ordinance 13666 General Commercial MAX DENSITY ALLOWED BY Industrial General Commercial (600 Co -Housing Units) FLUM Base Density 0 150 150 150 Persons per Household 2.81 2.81 2.81 2.81 Assumed Persons per Co -Housing Unit 0 0 1.5 0 Total Residential Population 0 3477 5389 6954 Table 2: Analysis of proposed density using scenarios as outlined above. Table 2 above breaks down the residential population counts under each possible development scenario allowed through the existing and proposed Future Land Use designations. As shown above, the highest possible impact to residential population comes from the development of the property under the proposed "General Commercial" designation combined with a 100 percent increase in allowed density through Ordinance 13666, which would yield a total residential population of 6,954. Under the development plan, as detailed in the Letter of Intent and the Concept Book, the total residential population would be 5,389, well below the highest possible population. Commentary: Density for Co -Housing (0.25 du) and Workforce Credit (1 du) Planning staff have agreed to assign each co -living unit a density of 0.25 a unit. In the above scenario, at build out with base density of 150 du/ac, the build out will result in a total of 1,237 dwelling units (600 co -housing units + 637 standard units). With the co -housing arrangement, 600 units with four rooms, each having density of 0.25 results in 2,400 rooms (for the co -housing unit portion). Each room in these co -housing units is designated as a workforce housing dwelling unit by Section 18 of the Applicant's Development Agreement. Thus, the same 2,400 "workforce housing units" are counted as merely 600 dwelling units for density. The image below illustrates the incongruity. 11 �O-IM11�JSlw!� V �l � C�-�IWGi V n1 } �� •`� �_ ro City departments and agencies, will (1) continuously monitor land LU -1.1.2 & development activities to ensure compliance with the adopted 2020 Future Policy LU- ttlkCN 9DO4 MRL- 1 O.?x DVXW* �-�IkR.D M D%a�4h �QVIkLS a,,., VN UI Nrr 140dc.10 VV0IU IT (sk"C Co-Yooscay OW T> Planning staff strongly recommends reconciling this incongruity such that the workforce housing should be determined to be 600 units, on par with the density calculation. Criteria 1 LU -1.1.2: "The City's Planning Department, with the assistance of various Policy City departments and agencies, will (1) continuously monitor land LU -1.1.2 & development activities to ensure compliance with the adopted 2020 Future Policy LU- Land Use Map (contained in Appendix LU -1 of the MCNP including FLUM, 1.6.4 Wellfield Protection Area, Wetlands and General Soils maps as amended from time to time) and the goals, objectives, and policies of the Future Land Use element of the MCNP; (2) monitor all proposed amendments to land development regulations to ensure consistency with the MCNP and will forward its recommendation on such amendments to the Planning Advisory Board and to the City Commission; (3) continuously monitor the current and projected LOS standards provided by public facilities; and (4) will perform the required concurrency review of proposed development, as required by Florida Statutes and administrative rules." LU -1.6.4: "Any proposal to amend the City's Zoning Atlas that has been deemed to require an amendment to the Future Land Use Plan Map by the Planning Department, shall require a level of service (LOS) review and a finding from the Planning Department that the proposed amendment will not result in a LOS that falls below the adopted minimum standards described in Policy CI -1.2.3, and will not be in conflict with any element of the MCNP." Analysis 1 Staff conducted a Concurrency review for the proposed amendment and found the proposed amendment is consistent with Policy LU -1.6.4. Transportation Staff highlighted the fact that NW 20 Street is currently at LOS D and suggested "additional mitigation efforts may be needed to reduce the impact". See the attached memo from the Transportation Staff included in Attachment A. Finding 1 Consistent 12 Criteria 2 "The City's zoning ordinance provides for protection of all areas of the city Policy from: (1) the encroachment of incompatible land uses; (2) the adverse LU -1.1.3 impacts of future land uses in adjacent areas that disrupt or degrade public health and safety, or natural or man-made amenities; (3) transportation policies that divide or fragment established neighborhoods; and (4) degradation of public open space, environment, and ecology. Strategies to further protect existing neighborhoods through the development of appropriate transition standards and buffering requirements will be incorporated into the City's land development regulations." Analysis 2 Proposed Miami Produce SAP introduces a new land use into an area of contiguous industrial land. Map 5 shows that, to the east and west, there is a contiguous and consistent pattern of properties designated Industrial and Light Industrial. Industrial uses are particularly sensitive to specific infrastructure needs and clustering is important to the developability of property with industrial uses. Preserving industrial use allowances in the study area would help maintain the suitability of continued industrial development in the area. Finding 2 While General Commercial category allows light industrial uses, the mix of activity may be incompatible with uses on the north, east, and west and is inconsistent with the MCNP. Criteria 3 "Land development regulations and policies will allow for the development Policy and redevelopment of well-designed mixed-use neighborhoods that provide LU -1.1.7 for the full range of residential, office, live/work spaces, neighborhood retail, and community facilities in a walkable area and that are amenable to a variety of transportation modes, including pedestrianism, bicycles, automobiles, and mass transit." Analysis 3 The proposed amendment would allow a mix of uses in a pedestrian friendly environment that is directly connected to Miami's transit system, with easy connections to Downtown and the Miami International Airport. Finding 3 Consistent Criteria 4 "The City's land development regulations will encourage high density Policy residential development and redevelopment in close proximity to Metrorail LU -1.1.10 and Metro mover stations. (See Transportation Policy TR -2.1.3 and Housing Policy HO -1.1.9.)" Analysis 4 The applicant site is adjacent to Santa Clara Metrorail station which currently has very low ridership. Introducing a mix of high-density residential and commercial uses adjacent to the Metrorail station directly responds to Policy LU -1.1.10. Finding 4 Consistent Criteria 5 "The City will require all new developments to implement transportation Policy control measures in an effort to promote a general reduction in vehicular TR -1.5.2 traffic by increasing auto occupancy and transit ridership. These measures can include, but not be limited to, parking management and ridesharing 13 14 programs to promote carpooling, vanpooling, car sharing and use of hybrid or electric vehicles, transit discount and fare subsidy programs, transit fare tax incentive programs, car charging stations, flexible work hours, compressed work weeks, telecommuting programs, the construction of on-site transit shelters, transit amenities, transit stops, transit drop-off locations or pull-out bays, bicycle storage facilities, bicycle share programs, and park-and-ride lots. (See Policy TR -1.2.7.)" Analysis 5 The applicant endeavors to reduce vehicular reliance through provisions for reduced parking, bicycle facilities, and an enhanced pedestrian realm. Finding 5 Consistent, with qualifications. The applicant should further detail within the development agreement policies such as providing transit passes, and amenities non -motorized transportation, especially given the economic circumstances of residents within the surrounding community. Criteria 6 "The City will continue to revise residential zoning district regulations to Policy provide greater flexibility for the design and development of a variety of HO -2.1.2 contemporary housing types and mixed-use developments with the application of new higher density zoning in accordance with neighborhood specific design and development standards that might be adopted as a result of amendments to the City's land development regulations and other neighborhood planning initiatives." Analysis 6 The proposed "General Commercial" designation would allow for innovative residential development design, such as the co -living arrangements, proposed by the applicant, where bedrooms share common areas and kitchen facilities. Finding 6 Consistent Criteria 7 "The City will implement growth strategies that encourage infill and Policy redevelopment in order to take advantage of the multimodal transportation TR -1.1.4 options available, thereby reducing the dependency on automobiles for new developments." Analysis 7 Miami Produce SAP is adjacent to Santa Clara station and on the 20th street Corridor and bus terminal. The intensity and uses allowed through "General Commercial" would have the potential to cluster activity around the Santa Clara station. This would allow residents and employees to take advantage of the transit system and convert at least some car trips to multi -modal trips. Finding 7 Consistent Criteria 8 "The City will continue to foster the development of bicycle and pedestrian Policy friendly neighborhoods and commercial centers that enhance the TR -2.2 environment, improve public health, and overall quality of life." 14 Analysis 8 The Miami Produce SAP emphasizes pedestrian and bicycle walkability in lieu of vehicular facilities, while the "General Commercial" designation would allow the level of activity that best produces a robust pedestrian environment. Finding 8 Consistent Criteria 9 Incentivize sustainable, affordable housing solutions while continually Goal LU -4 improving the quality of life for all who live in the City of Miami. Objective LU -4.3 By 2023, forty percent (40%) of the housing stock built under affordable and attainable mixed -income programs, as described in the applicable land development regulations, will be reserved for workforce housing. Analysis 9 This Goal was established for increasing the base density allowed for specific FLU designations, including General Commercial, up to 100 percent. The objective was designed to incentivize projects like the Miami Produce SAP, so that residents of various ranges of incomes can live together in the same neighborhood. Specific land development regulations have been passed to leverage these bonus densities, specifically to increase affordability; in this case, co -housing is proposed for workforce housing. Furthermore, density for these units is only counted at 0.25 dwelling unit but each of these units (2,400 of them) will be credited for workforce housing according to Section 18 of the Development Agreement. Finding 9 The City has ambitious objectives of providing 40 percent of housing stock developed through bonus densities for low-income elderly residents and 40 percent of housing stock developed through bonus densities for workforce housing. Each co -housing unit is assigned a density of 0.25 (resulting in a density of 600 du) but the Development Agreement seeks full credit for each co -housing unit (resulting in a total of 2,400 workforce housing units—for the same number of rooms) for workforce housing benefits. To the extent that this project is developing less than this, the finding for this analysis is inconsistent. Conclusions While the Miami Produce SAP presents some concerns regarding future land use changes, the benefits of a major mixed-use development of a high design standard adjacent to transit are significant and overshadow potential negative impacts. The Miami Produce SAP and the proposed amendment to "General Commercial" are primarily consistent with stated objectives in the MCNP. Staff concerns regarding loss of industrial land are offset by the applicant's retention of light industrial uses in the General Commercial category as well as retention of historic industrial buildings and industrial building characteristics in new construction. Additional staff concerns regarding area affordability of housing and introducing substantial density in an area with low and moderate incomes are partially addressed by Miami Produce including new housing types as well as commitments in the development agreement. However, the development agreement is weak in addressing issues of affordability, especially given the fact that the surrounding community is characterized as Low -to -Moderate -Income by HUD, the well-documented concerns about displacement from local residents, and the fact that the Economic Analysis does not anticipate any accommodation for rents affordable to residents below those at 140 percent AMI. Being so near transit, this project is the most ideally -suited for 15 accommodating, not only the City's workforce -qualified residents, but even those who are Low - Income and Very -Low -Income (30 percent AMI). The degree to which this Applicant modifies its approach to redevelopment to address housing the City's residents below the AMI will be the degree to which this project increases its consistency with the MCNP. Miami Produce SAP could create a potential conflict by introducing a new land use in a well-established area. The incompatible uses could also emphasize a pattern of inward facing development rather than an outward -facing pattern that improves the public realm. It is important that connections to the city are emphasized in the regulating plan and are continuously monitored as the project and neighborhood develop. Staff recommends approval of the comprehensive plan amendment with the understanding that it is a companion item to a rezoning with ties to a development agreement and regulating plan. This recommendation is subject to further modification based on staff analyses and continued community input. ll�FW Jeremy Calleros Gauger, AIA, LEED AP Deputy Director, City of Miami Planning Attachments Attachment A: Concurrency Management Report 16 Works Cited Chang, D. (2018, May 9). Your Taxes Are Paying for This $1.5 Billion Makeover to Miami's Public Hospital System. Miami Herald. Retrieved January 21, 2019, from https://www.miamiherald.com/article2lO7O4664.html Chapple, K. (2015). The Challenge of Mixing Uses and the Secret Sauce of Urban Industrial Land. In K. Chapple, Planning Sustainable Cities and Regions: Towards More Equitable Development (pp. 207-222). New York: Routledge. HNTB. (2012). Health District Bicycle and Pedestrian Mobility Plan. Miami: Miami Dade County Metropolitan Planning Organization. Retrieved January 21, 2019, from miamidadetpo.org/.../health-district-bicycle-pedestrian-mobility-plan-final-2012-01.pdf Kevin T. Greiner, M. J. (2017). The Dynamics of Housing Affordability in Miami -Dade County: Assessing the Implementation and Impacts of Inclusionary Zoning. The South Florida Housing Studies Consortium of the FIU Metropolitan Center and UM Office of Civic and Community Engagement. Miami, FL: University of Miami office of Civic and Community Engagement. Retrieved January 21, 2019, from https:Hcivic.miami.edu/_assets/pdf/housing-initiatives/housing-reports/Dynamics-of- Housing-Affordability-Inclusionary-Zoning-2017-4-19-Final.pdf Kolko, J. (2011). Making the Most of Transit: Density, Employment Growth, and Ridership around New Stations. Public Policy Institute of California. Retrieved January 21, 2019, from https://www.ppic.org/publication/making-the-most-of-transit-density-employment- growth-and-ridership-around-new-stations/ Leigh, N. G. (2012). Smart Growth's Blind Side. Journal of the American Planning Association, 78(1), 87-103. Miami -Dade County Transportation and Public Works. (2018). Ridership Technical Report. Retrieved January 21, 2019, from https://www.miamidade.gov/transit/library/rtr/2018-11- Ridership-Technical-Report.pdf Office of Policy Development and Research. (2019, January 21). Qualified Census Tracts and Difficult Development Areas. Retrieved January 21, 2019, from HUD User: https://www.huduser.gov/portal/datasets/qct.htmI Puget Sound Regional Planning Council. (2015). Transit -Supportive Densities and Land Uses: A PSRC Guidance Paper. Puget Sound Regional Planning Counciel. Retrieved January 21, 2019, from https://www.psrc.org/sites/default/files/tsdluguidancepaper.pdf Saunders, P. (2018, December). The Scales of Gentrification. Planning, pp. 16-23. T. William Lester, N. K. (2014, June). Making Room for Manufacturing: Understanding Industrial Land Conversion in Cities. Journal of the American Planning Association, 79(4), 295- 313. WLRN. (2019, January 21). INLRN.org. Retrieved from Gentrification: http://www.wirn.org/term/gentrification 17 ATTACHMENT A CONCURRENCY MANAGEMENT ANALYSIS CITY OF MIAMI PLANNING IMPACT OF PROPOSED AMENDMENT TO FUTURE LAND USE MAP I PROJECT DETAILS I Project Dox Number: PZ -18-263 Date: January 18, 2019 Miami Produce Center, LLC 2140 NW 12 AV and 1243 and 1215 NW 21 ST Boundary Streets: North: NW 22 ST East: NW 12 AV South: NW 24 ST West NW 13 AV Existing Future Land Use Designation: Industrial Residential Density: 8.25 acres @ DU/acre 0 DUs Assumed Population 0 Persons Proposed Future Land Use Designation: Residential Density 8.25 acres @ 150 DU/acre 1,237 DUs Assumed Population with Increase 3475 Persons NEIGHBORHOOD INFORMATION NET Area Allapattah WASD Sewer Pump Station Basin Basin 0054 Moratorium? Yes Drainage Subcatchment Basin G1 RELEVANT MCNP GOALS, OBJECTIVES, AND POLICIES Future Land Use Goal LU -1 Future Land Use Objective LU -1.1 Future Land Use Policy LU -1.1.1 Capital Improvements Goal CI -1.2 Capital Improvements Objective CI -1.2 Capital Improvements Policy 1.2.3, a -g Transportation Objective TR -1.6 Transportation Objective TR -1.5 CONCURRENCY ANALYSIS Increase in Population: 3475 RECREATION AND OPEN SPACE MCNP Parks, Recreation, and Open Space Policy PR -1.1.4 requires a 10 -minute (1/2 -mile) barrier -free walk to a park entrance. Concurrency Test Result: • POTABLE WATER Level of Service standard: 92.05 GCPD Transmission potential with FLUM change 319,874 Policy PW -1.2.1 Excess capacity assumed to be 2% after change Concurrency Test Result: • SANITARY SEWER TRANSMISSION Level of Service standard: 141 GPCD Policy SS -1.3.1 Excess capacity: See Note 1 below. Concurrency Test Result: STORM SEWER CAPACITY Exfiltration system before change On-site Exfiltration system after change On-site Concurrency Test Result: • SOLID WASTE COLLECTION Solid waste generation, 1.28 tons/resident/year 4,448 Excess capacity before change 800 Excess capacity after change (3,648) Concurrency Test Result: • TRANSPORTATION Level of Service standards in Objectives TR -1.6 and TR -1.7 Concurrency Test Result: NOTES Permit for sanitary sewer connection must be issued by Miami -Dade Water and Sewer Department (WASD). Excess capacity, if any, is currently not known Assumed population with increase is assumed to be all new residents as permitted by the proposed future land use designation's base density ascribed through the Interpretation of the 2020 Future Land Use Map and associated Correspondence Table. Additional density may potentially be attainable subject to the detailed provisions of applicable land development regulations. Concurrency is addressed in a separate memorandum provided by the Office of Capital Improvements. CITY OF MIAMI, FLORIDA TRANSPORTATION CONCURRENCY MEMORANDUM Sue Trone, AICP DATE: December 18, 2018 Chief, Comprehensive Planning FILE: SUBJECT: Miami Produce SAP Transportation Concurrency REFERENCES: FROM: Collin Worth ENCLOSURES: Bicycle Coordinator/ Transportation Analyst As part of the transportation concurrency review for the Produce SAP, a review of the maximum potential PM Peak trip generation for the current land use, as well as a review of the future land use maximum potential PM Peak trip generation. The findings show the proposed future land use will generate a difference in 3,935 PM Peak Hour trips. A traffic study performed by the applicant for the Miami Produce SAP identifies NW 12th Ave currently operating at LOS C, and NW 201h St as currently operating at LOS D. While additional mitigation efforts may be needed to reduce the impact on NW 20th St. based on the maximum potential trip generation. 02 1812,11,31, �MffliiiftI 1-tmm Attachment A:-Concurrency.Management ReportJw25TH ST r�� 17 ��' • I --i 15 I � d I H= level � 1 j P,arks,�Recreation, & Open_Space-Level of Serviced )f NW 23RD'ST 2 MCO -7i El EJ Q Q H H _V N_ Z z NW -1 6TH Lj? NNW 24TH ST LU a� x nl\A/ 99nlrl SFR z T NWI21II I JEIR �o F - z Ui 2 F; 7! z NW 21 ST�ST NW 20TH ST NW_16TH ST, 41r. 2 CD 0 z M I �— ❑� NW_14TH -TER�4' z - N NW -14TH STS fl110 150 300 600 Feet' z 1 s� lor-eetlIN'TIanni2019 the C:iTy.egghF Par,sM D Department NW 18TH TER -w� NW -18TH ST w 71 1> ;a 11L IT x f --- NW_17_TH ST w Q x � U � x Z ■ Broward Circle Z Mini Park U�Pine Heights NW 15TH_ST 1Mi,,n',,,Park\,P 95 �f Subject Properties - Park 10 -Minute Walk Area (Streets) Park Service Area AERIAL FILE ID: PZ-18-263 COMPREHENSIVE PLAN AMENDMENT NW 22ND TER NW22ND ST lam # ALF. NW 21ST TER— LU ERw t F R NWr21 ST-TER co NW-21 ST-TEF N Nm . s �r �'� :� ;� �� Imo►, s, NW 21ST ST r A!!v ■ ` . q, NN, +111 jp, NN• ffllgq N11 ,NI ,IN NN � N 0 125 250 500 Feet I SAN. e d _ ADDRESS: 2140 NW 12 AVE FUTURE LAND USE MAP (EXISTING) ePLAN ID: PZ -18-263 COMPREHENSIVE PLAN AMENDMENT LIGHT INDUSTRIAL NW 22ND ST INDUSTRIAL w 'a Q, NW 21ST TER 2 � N �I Z Z NW 21 ST ST LIGHT GENERAL RESTRICTED COMMERCIAL INDUSTRIAL COMMERCIAL NW 20TH ST N ADDRESSES: 2140 NW 12 AVE 0 125 250 500 Feet FUTURE LAND USE MAP (PROPOSED) ePLAN ID: PZ -18-263 COMPREHENSIVE PLAN AMENDMENT LIGHT LIGHT INDUSTRIAL INDUSTRIAL INDUSTRIAL AkAM INDUSTRIAL NW 22ND ST A NW 21 ST ST NW 20TH ST LIGHT INDUSTRIAL N ADDRESSES: 2140 NW 12 AVE 0 125 250 500 Feet