ITEM DESCRIPTION:
Title
1st Reading - Ordinance No. 2025-O-17: Request to amend the Comprehensive Plan’s Future Land Use Element for two parcels located on the east side of Ridgewood Avenue, north of Pelican Drive from Commercial to Medium Density Residential ( Parcel IDs: 8402-44-00-0011 & 8402-00-00-0200).
Body
APPLICANT:
James C Carder
LOCATION:
East of Ridgewood Avenue, North of Pelican Drive, West of the Indian River Waterway
AREA:
.57± Acres
PROPOSED USE:
Single-Family Residential
CURRENT FLUM DESIGNATION:
Commercial
PROPOSED FLUM DESIGNATION:
Medium Density Residential
ZONING DISTRICT:
B-3 Highway Commercial. Tentatively R-4 Residential with Concurrently Submitted Application
VOTING DISTRICT:
Council District 3, Councilperson Debbie Dolbow
STAFF RECOMMENDATION:
Approval
PLANNING BOARD:
November 12th, 2025
CITY COUNCIL:
December 1st, 2025
Discussion:
The applicant is requesting a small-scale comprehensive plan amendment to change to the Future Land Use Map for the subject property located on approximately .57 acres east of Ridgewood Avenue, west of Indian River Waterway, north of Pelican Drive (Parcel ID’s: 8402-44-00-0011 & 8402-00-00-0200) from Commercial to Medium Density Residential. The applicant has submitted an application for a rezoning from B-3 Highway Commercial to R-4 Residential. The zoning and future land use will be compatible with the surrounding residential neighborhood and the existing uses. The property is within the Interlocal Service Boundary Agreement area mutually adopted by Volusia County and the City as well as contiguous to the city boundaries.
Figure 1: Location Map
Figure 2: Future Land Use Map Change
Surrounding Area:
The subject property is located east of Ridgewood Avenue, west of Indian River Waterway, north of Pelican Drive and is currently zoned B-3 Highway Commercial with a Future Land Use designation of Commercial. The surrounding properties to the north, south, and west are zoned B-3 Highway Commercial with a Future Land Use designation of Commercial, and the properties to the east are zoned R-4 Residential with a Future Land Use Map designation of Medium Density Residential. The current use of the East parcels are zoned R-4 which will Bring these parcels into the proposed zoning and land use provides a desirable transition between residential and commercial properties located along US1 and the adjacent residential neighborhood. Feathering density from Commercial to Medium Density Residential is a desirable change in the Future Land Use.
The adjacent land uses and zoning classifications for the adjacent parcels are illustrated in the following table. Existing uses shown below are not intended to be an all-inclusive list, but a general summary of types of uses near the subject property. The subject parcel is outlined in the aerial exhibit.
Table 1: Surrounding Area, FLU Designations, Zoning Designations
|
|
Current Land Use |
FLUM Designation |
Zoning District |
|
North |
Vacant Commercial |
Commercial |
B-3 Highway Commercial |
|
East |
Unincorporated Single Family |
Urban Low Density |
R-3W |
|
South |
Developed Commercial |
Commercial |
B-3 Highway Commercial |
|
West |
Developed Commercial |
Commercial |
B-3 Highway Commercial |
Table 2: Current and Proposed Future Land Uses - Density/Intensity
|
Current FLU |
Proposed FLU |
Net Change in FLU |
|
Commercial |
Medium Density Residential |
|
|
Theoretical Maximum Density (units)/Intensity (sq. ft.) |
|
0.5 FAR |
8 DU/Acre |
+4 Dwelling Units |
Land Use Compatibility:
The subject properties currently consist of 2 parcels totaling approximately .57± acres
with a future land use designation of Commercial. The neighborhood on the east side of Ridgewood Avenue is zoned R-4 Residential and has a future land use designation of Medium Density Residential.
The FLU of the surrounding area is primarily Residential to the east and Commercial to the west in character. Considering this, along with Table 1 of the surrounding FLU designations, the proposed land use is consistent with the existing and future land use of the surrounding neighborhood and provides an appropriate transition from Commercial to Residential properties.
Comprehensive Plan Compatibility:
The Medium Density Residential Future Land Use Designation is compatible with the Comprehensive Plan and the surrounding neighborhoods near the Ridgewood Avenue/Indian River Boulevard corridor. Specifically, the small-scale comprehensive plan complies with the following:
• Policy 1.1.2: Density/Intensity.
The City shall adopt maximum densities and intensities for each land use category which encourage economic development while protecting the natural environment as indicated in the above table.
Staff Response: Staff has determined that feathering density through the requested change to the Future Land Use will accommodate the existing development patterns.
• Policy 1.5.1 - Inconsistent Land Uses
Proposed land use amendments, which are inconsistent with the character of the community or inconsistent with adjacent future land uses shall not be approved by the City, unless the adjacent future land use can be shown to be inconsistent with the Comprehensive Plan.
Staff Response: Staff has determined that Medium Density Residential FLU designation is compatible and consistent with the adjacent neighborhood and a desirable transitional future land use between Commercial and Low Density Residential.
• Policy 1.3.1 - Impact on Current LOS Services and Facilities
The City shall review all development and redevelopment proposals to determine their specific impacts on current Levels of Service (LOS) for all services and facilities addressed in this Comprehensive Plan.
Staff Response: Staff has reviewed the LOS for all services involved in amending this property with a FLU of Medium Residential and found it will not adversely affect the LOS standards in the Comprehensive Plan. Furthermore, it is directly adjacent with access to potable water, sewer, and a main arterial road.
• Policy 1.2.1 - Prohibiting the Expansion of Non-Compatible Uses. The City shall
implement regulations prohibiting the expansion of non-compatible uses
within residential neighborhoods.
Staff Response: Changing the FLU from Commercial to Medium Density Residential will ensure consistency with the character of the adjacent neighborhood.
Impact Analysis
In accordance with standard practice from the State Land Planning Agency (Florida Commerce) and other review agencies, an impact comparison analysis of the proposed amendment has been completed based upon the theoretical maximum development potential under the currently adopted future land use designations versus the proposed designation.
Table 2. Impact Analysis (Theoretical Max.)
|
Development Variable |
Current FLU |
Proposed FLU |
Net Change |
|
|
Theoretical Maximum |
|
|
Intensity |
30,224 + sq. ft. |
0 sq.ft. |
-30,224 sq.ft. |
|
Residential Units |
0 |
4 |
+4 |
|
Population1 |
N/A |
17.08 |
+17.08 |
|
Traffic Trips (PM Peak Hour)2 |
68.9 |
6.58 |
-62.32 |
|
Potable Water (gallons/day)3 |
3,083 |
816 |
-2,267 |
|
Wastewater (gallons/day)4 |
3,083 |
816 |
-2,267 |
|
Solid Waste (#/Day) 5 |
38.5 |
10 |
-21.03 |
1. Population based on 2.44 persons per household (per 2020 census)
2. ITE Trip Generation Manual, 11th Edition: Single Family Residential (210) 0.94 PM Peak House/Dwelling Unit. Current FLU estimated for Retail Shopping Center >150ksf, 3.4 PM Peak Hour trips per 1,000sf.
3. Potable per day based on 204 gpd for Equivalent Residential Unit. Current FLU calculated by 0.5 ERU per 1,000 sf gross. Proposed FLU calculated by 0.57/1,000 SF for theoretical retail.
4. Wastewater per day based on 204 gpd for Equivalent Residential Unit.
5. Solid Waste per day based on 2.5 pounds per capita (ERU) per day
Transportation:
The subject properties are planned to be single family residences with vehicular transportation access abutting Pelican Drive, which is a local road that connects to Ridgewood Avenue, an arterial road leading to the Interstate system via Indian River Boulevard. The aforementioned roads are currently operating at acceptable levels of service. The net change in trips is shown above in Table 2.
Sanitary Sewer:
The City’s adopted LOS standard for sanitary sewer is 204 gallons per equivalent residential unit. Using this standard, the proposed land use would theoretically generate a demand of 1,428 gallons per day. This results in a net change of -1,716 gallons per day when compared to the theoretical Commercial Land Use. It should be noted that the City’s sewer treatment facility is currently operating at an acceptable level of service.
Permitted Plant Capacity: 2,750,000 gpd AADF
12-month Annual Average Daily Flow: 1,555,000 gpd AADF
Existing Accounts: 9,962 of which 47 serve unincorporated properties
Average Flow per Existing Account: 156 gpd
Adopted LOS per Policy 1.1.1: 204 gpd/ERU
Outstanding Committed Capacity: 927 ERU (189,108 gpd AADF)
Remaining Capacity Available: 4,931 ERU (1,005,892 gpd AADF)
Potable Water:
The City’s adopted LOS standard for potable is 204 gallons per equivalent residential unit. Using this standard, the proposed land use would theoretically generate a demand of 1,428 gallons per day. This results in a net change of -1,716 gallons per day. It should be noted that the City’s potable water is currently operating at an acceptable level of service under the consumptive use permit (CUP).
Permitted Plant Capacity: 5,000,000 gpd Max Day
12-month Annual Average Daily Flow: 2,073,667 gpd AADF
Existing Accounts: 11,975 of which 975 serve unincorporated properties
Average Flow per Existing Account: 173 gpd
Adopted LOS per Policy 1.1.1: 204 gpd/ERU
Outstanding Committed Capacity: 1,070 ERU (218,280 gpd AADF)
Remaining Capacity Available: 13,275 ERU (2,708,053 gpd AADF)
Solid Waste Collection:
The proposed land use allows for 4 residential units, with a theoretical population of 17. This would generate 17.5 pounds of solid waste per day, which is -21.03 pounds when compared to the theoretical uses under the Commercial Land Use designation. Solid waste generated within the City is directly hauled to the Volusia County Landfill. The 3,000-acre landfill is a Class I facility with a projected life span to the year 2050.
Types of Waste Handled: Class 1, Class 3, & Yard Waste
Average Tons per Month: 1,284 TOTAL=971 Class 1 + 166 Class 3 + 147 Yard
Existing Accounts: 10,463 of which 0 serve unincorporated properties
Average Weight per Existing Account: 245 lbs/month, est. 30.6 lbs/collection day
Adopted LOS per Policy 1.2.2: 2.5 lbs per capita per day
Outstanding Committed Capacity: 1,070 ERU
Remaining Capacity Available: 1,011 ERU
Public Schools:
Based on the Volusia County School District’s student generation (SGR) rate for a single-family dwelling unit (0.258 Students per unit), the proposed land use could generate at least 1 full time student. This is a net increase of 1 from the current land use. The applicant has submitted a Volusia County Schools Concurrency Application and is awaiting an adequacy finding.
Public Notice:
A Public Notice sign was posted on the site on October 29th, 2025. In addition, Public Notices were mailed to all residences within 500’ of the project.
Planning and Zoning Board:
The Planning and Zoning Board sent a favorable recommendation to the City Council with five (5) members in support and zero (0) in opposition.
Recommendation:
Motion to approve Ordinance 2025-O-17.