TO: Board of County Commissioners
THROUGH: John A. Titkanich, Jr.; County Administrator
FROM: Patrick J. Murphy; Chief Long-Range Planning
DATE: June 3, 2025
SUBJECT: Sage Cottage Land Company, LLC.'s Request to Rezone Approximately ±13.2
Acres from RS-6, Single-Family Residential District to RM-6, Multiple-
Family Residential District (200602001-97158)
__________________________________________________________________
BACKGROUND
The subject property is situated on the south side of 9th Street SW (also known as Oslo Road), approximately 0.57 of a mile west of 7th Road SW and approximately 0.35 of a mile east of 20th Avenue SW, in south-central Indian River County. The parcel is located directly across from the County’s Intergenerational (IG) Recreation Center and transit hub, a regional facility providing public recreational amenities and serving as a public transit connection point.
The overall parcel comprises ±23.5 acres and is currently split-zoned. The northern ±10.3-acre portion of the parcel is zoned RM-6, Multiple-Family Residential District (up to 6 units/acre), while the southern ±13.2-acre portion, the subject of this request, is zoned RS-6, Single-Family Residential District (up to 6 units/acre). The applicant seeks to rezone the south RS-6 portion to RM-6 to establish consistent zoning across the entire parcel. The proposed future development consists of single-family attached dwellings (townhomes), which are a permitted use within the RM-6 zoning district but would not be allowed in the RS-6 district.
The property is currently undeveloped and is bounded by public rights-of-way on three sides: 9th Street SW (Oslo Road) to the north, 11th Street SW to the south, and a 30-foot-wide unimproved right-of-way along the eastern property line. These surrounding rights-of-way offer separation from adjacent properties and provide access flexibility. The exception is the southwest portion of the property where it abuts the Grace Woods subdivision.
The Future Land Use (FLU) designation of the property is L-2 (Low-Density Residential-2), which permits residential development up to 6 dwelling units per acre. The L-2 FLU designation allows for both single-and multi-family residential uses. The site is located within the County’s Urban Service Area, where higher-intensity development is encouraged and supported by the availability of public infrastructure. It is also within the boundaries of the Oslo Road Corridor Overlay. While the property does not fall within the current Oslo Corridor Study Area, which focuses on the area near the I-95 interchange, it lies within the developed segment of the Oslo corridor east of the interchange.
The proposed RM-6 zoning is consistent with the existing L-2 FLU designation, and the request does not seek an increase in residential density. Rather, it will facilitate cohesive site planning under a unified zoning designation. Any future development will be subject to all applicable Land Development Regulations (LDRs), including subdivision or site plan review, concurrency, utility connection requirements, and transportation access standards.
Existing Land Use Pattern
The surrounding area reflects a mix of residential, commercial, public, and other uses characteristic of the Oslo Road corridor. Directly north of the subject site is a landscape nursery and automative sales/repair business. Various commercial uses exist to the northeast and to the northwest. Across Oslo Road is the Richard N. Bird South County Regional Park, which contains the County IG Center and associated recreational facilities (designated Public (PUB) and Recreation (REC) on the Future Land Use Map). Directly east and south of the site are lands with residential designations and zoning, including single-family residential (e.g., RS-6) and RM-6 zoned properties. West of the site the corridor transitions to more intensive future land use designations, including Commercial/Industrial (C/I), and zoning such as MED (Medical District) and CH (Heavy Commercial). Existing RM-6 zoned properties in the vicinity indicate that multiple-family residential use is an established part of the local land use pattern.
The subject property is located within a portion of the Oslo Road corridor characterized by a varied mix of residential, commercial, and light industrial zoning districts, reflecting a pattern of interspersed land uses rather than a linear transition in intensity. The presence of the transit hub and regional park directly across Oslo Road provides a compatible public use for a future multi-family development, and the extensive road frontages around the site will help buffer and integrate it with surrounding land uses. The area is within the County’s Urban Service Area and along a planned urban corridor, indicating that the general development pattern is one of suburban infill rather than rural development. Converting the remaining portion of the parcel to RM-6 will allow a logical extension of the existing residential pattern at an intensity that has been envisioned for this area under the Comprehensive Plan (L-2 designation). The unified RM-6 zoning will support an orderly development pattern by facilitating a coordinated site design for the entire property, rather than a fragmented approach under two different zoning designations.
Zoning District Differences
The current zoning (RS-6) and proposed zoning (RM-6) are both residential districts permitting a maximum density of 6 dwelling units per acre, but they differ in the types of residential development allowed. The distinctions between these two zoning districts are best understood by their purpose and intent as defined in the County’s Land Development Regulations (LDRs). These Purpose Statements provide a clear framework for understanding the objectives and scope of each district’s allowable uses and developmental potential. The purpose statements are as follows:
RS-6: Single-Family Residential District (up to 6 units/acre): This district is intended to provide areas for low-density single-family detached residential development within the Urban Service Area. It accommodates traditional single-family neighborhoods and associated uses (such as parks, schools, and churches) in a manner that protects the character of those residential areas. The emphasis of RS-6 is on individual dwelling units on separate lots at a moderate urban density, with standards to ensure compatibility with adjacent residences (e.g. setbacks, height limits, and density consistent with the Comprehensive Plan).
RM-6: Multiple-Family Residential District (up to 6 units/acre): This district is intended to provide areas suitable for low-density multiple-family residential development, as well as single-family dwellings, up to 6 units per acre. The RM-6 district allows a broader range of housing types - including duplexes, townhouses, and apartment or condominium units, thereby offering more diverse housing opportunities. The purpose of RM-6 is to accommodate these housing types in locations within the Urban Service Area that are served by adequate infrastructure and serve as transitions between single-family neighborhoods and higher-intensity commercial or industrial areas. Development in RM-6 must still adhere to the same density cap (6 units/acre) and development standards ensuring it remains compatible with surrounding land uses (through buffering, open space, height limits, etc.), but it permits a grouping of units (attached or in multi-unit buildings) on a site, as opposed to exclusively one unit per lot in RS-6. (See Attachment 3 for a zoning district comparison table)
ANALYSIS
The following analysis is per Chapter 902: Administrative Mechanisms, Section 902.12(3), which states that all proposed amendments shall be submitted to the Planning and Zoning Commission, which shall consider such proposals in accordance with items (a) through (k) of Section 902.12(3).
Item A - Whether the proposed amendment conflicts with any applicable portion of the land development regulations (LDRs).
Staff cannot identify any conflicts between the requested RM-6 zoning and the County’s LDRs. Both the current and proposed zoning districts are standard residential zones established in the LDRs, and the RM-6 district is an appropriate implementing zone for the property’s L-2 future land use designation. The requested rezoning represents a change in the type of residential use allowed (to include multi-family) but does not increase the permitted residential density. All development on the site will remain subject to applicable LDR requirements (such as landscaping, buffering, setbacks, building height, stormwater management, etc.), and the rezoning itself does not grant any variances or exceptions to those regulations. Unifying the parcel under a single zoning classification will simplify the application of LDR standards on the site by eliminating the split-zoning scenario. This coherence will help ensure that any future development can more easily comply with the LDRs.
Item B - Whether the proposed amendment is consistent with all elements of the Indian River County Comprehensive Plan.
The goals, objectives, and policies outlined in the comprehensive plan are critical to guiding the County's development. Policies serve as actionable commitments that direct how the County will shape and manage growth. These policies form the foundation for all land development decisions, ensuring that the County’s planning efforts align with its long-term vision.
The request to rezone to RM-6 is consistent with the goals, objectives, and policies of the Comprehensive Plan, particularly the provisions of Chapter 2 Future Land Use Element regarding urban residential development, land use compatibility, and housing diversity. Several key Comprehensive Plan policies and objectives apply to this proposal:
Urban Service Area & Efficient Growth: The Comprehensive Plan directs urban development into the Urban Service Area, where infrastructure and services are available to support higher densities. The subject property is located within the Urban Service Area and along an arterial road that has county water and sewer service available. By focusing development on this infill site, the rezoning furthers the Plan’s intent to concentrate growth where it can be most efficiently served, thereby discouraging sprawl and ensuring infrastructure investments are used effectively.
Future Land Use Designation: The property’s future land use is L-2 (Low-Density Residential-2), which allows up to 6 dwelling units per acre. The proposed RM-6 zoning carries the same maximum density of 6 units/acre, meaning it aligns with the density and use intensity envisioned for the site under the Comprehensive Plan. No change to the Future Land Use Map is required or requested - the rezoning implements the existing L-2 designation by permitting an alternate residential development form (multi-family) that the Plan supports in appropriate locations. Policy 5.2 of the Future Land Use Element stipulates that the residential densities shown on the Future Land Use Map are the maximum permitted; the RM-6 zoning will not exceed the L-2 density cap and thus remains consistent with the Plan’s density provisions.
Housing Variety and Land Use Compatibility: The Comprehensive Plan (Plan) encourages a diverse mix of housing types and a balanced distribution of residential densities. Future Land Use Element Objective 5 sets a goal that by 2030, at least 25% of the County’s housing units be in multi-family, mixed-use, or traditional neighborhood project. Allowing the subject site to develop with multi-family housing directly supports this objective by increasing opportunities for multiple-family units in an area designated for urban residential use. Moreover, the Plan contains locational criteria for residential development to ensure compatibility via Future Land Use Policy 1.43, which provides that multiple-family residential districts should be situated in suitable locations, such as: along arterial or collector roads, adjacent to other multi-family or non-residential uses, and not isolated amid single-family areas. The subject property meets these criteria, it fronts on Oslo Road (an arterial), is across from a public/institutional use (park and transit center), is near other RM-6 zoned land, and is not bordered on all sides by single-family development (roads form boundaries on three sides).
Future Land Use Policy 1.43 Criteria - Evaluation of Multi-Family Zoning Appropriateness
• Frontage along an arterial or collector roadway: The subject property has direct frontage on 9th Street SW (Oslo Road), which is designated as a major arterial on the County’s Thoroughfare Plan.
• Proximity to non-residential uses: The property is located directly across from the Indian River County Intergenerational Recreation Center and regional park facilities and is adjacent to parcels zoned CH (Heavy Commercial), CL (Limited Commercial), and IL (Light Industrial), indicating a strong presence of nearby non-residential uses.
• Adjacent to other multiple-family residential zoning: The northern portion of the parcel is already zoned RM-6, and additional RM-6 zoned parcels are present in the immediate vicinity, supporting zoning continuity and use compatibility.
• Not surrounded entirely by single-family zoning: The subject property is currently split-zoned, with the northern portion designated RM-6 for multiple-family residential use. Additionally, the parcel is bordered on three sides by public rights-of-way (Oslo Road, 11th Street SW, and an unimproved right-of-way to the east), which physically separates it from surrounding properties. The parcels abutting the site to the east also share the same RM-6 zoning designation, further reinforcing that the property is not enclosed by single-family residential zoning.
• Location within the Urban Service Area: The parcel is located within the County’s designated Urban Service Area, where infrastructure is available and urban residential development is encouraged in accordance with the Comprehensive Plan.
By meeting these planning guidelines, the proposed rezoning is consistent with Comprehensive Plan policies aimed at promoting compatible land use arrangements. Additionally, Policy 1.4 of the Future Land Use Element calls for the LDRs to ensure adjacent land uses are made compatible through tools such as buffers, setbacks, and open space. Any future development on the site will be required to incorporate such measures, which are feasible and practical under the RM-6 zoning, thereby upholding the Plan’s intent to protect neighboring uses.
Item C - Whether the proposed amendment is consistent with existing and proposed land uses.
The proposed rezoning is consistent with the existing and planned land uses in the vicinity, as reflected in both the current development pattern and the County’s Future Land Use Map. The subject property’s Future Land Use designation of L-2 (Low-Density Residential-2) is intended for residential uses up to 6 units per acre, and both the current RS-6 and proposed RM-6 zoning districts correspond to and implement that designation. Since RM-6 is an allowed zoning category under L-2 (just as RS-6 is), the rezoning remains consistent with the future land use planned for the site. Importantly, the change to RM-6 does not alter the fundamental use of the property as residential, nor the density, but rather allows a different residential product type.
Item D - Whether the proposed amendment follows the adopted county thoroughfare plan.
The County’s Thoroughfare Plan identifies 9th Street SW (Oslo Road) as a major east-west arterial serving this area. The subject property has direct frontage on Oslo Road. Concentrating residential development at this location is in line with thoroughfare planning principles, since arterial roads are intended to accommodate urban development and higher traffic volumes. At the development review stage, the project will be required to meet access management and driveway spacing standards on Oslo Road (and possibly 11th St SW), consistent with the Thoroughfare Plan and Land Development Regulations. The rezoning itself does not propose any changes to road alignments or classifications and remains in full compliance with the adopted Thoroughfare Plan.
Item E - Whether the proposed amendment would generate traffic which would decrease the service levels on roadways below the level adopted in the comprehensive plan.
The rezoning is not expected to cause any adverse impact to traffic levels of service on area roadways. Critically, the potential number of dwelling units on the site will not increase because of this amendment - the maximum development density remains 6 units/acre under either zoning. This means the potential traffic generation from the parcel, at full buildout, should be roughly equivalent to what could occur under the current zoning. While the type of residential development may change (e.g., multi-family instead of single-family homes), trip generation rates for multi-family uses are generally in the same order of magnitude as for single-family uses at the same density. Additionally, multi-family developments sometimes produce slightly fewer vehicle trips per unit, and the presence of the transit hub across the street could encourage future residents to use public transit, potentially reducing some car trips.
Oslo Road is currently operating above acceptable levels of service. If the subject property were developed to its maximum allowed density, the traffic added to Oslo Road and connecting network would not degrade the roadway level of service below the adopted standard. The Comprehensive Plan’s Transportation Element establishes the acceptable level of service for Oslo Road, and concurrency review at the time of development will ensure that those standards are maintained. Since this rezoning does not increase development intensity, staff analysis indicates that no significant impact to roadway capacity or traffic operations will result.
Item F - Whether there have been changed conditions which would warrant an amendment.
Staff finds that there are changed conditions in the area and in policy direction that support this rezoning. Since the original establishment of the split zoning on this parcel, the Oslo Road corridor has evolved, and the context of the property has shifted in a manner that makes a unified RM-6 zoning appropriate. Notably, the new I-95/Oslo Road interchange currently being developed has increased development pressure and interest along Oslo Road, prompting the County’s ongoing Oslo Corridor Study. In conjunction, the County’s development of the IG Center and transit hub across from the subject site has introduced a significant public facility that anchors the area and provides amenities (transit service, recreation) supportive of residential growth. These infrastructural and community investments represent changed conditions that favor a more flexible residential use of the subject property.
Item G - Whether the proposed amendment would decrease the level of service established in the comprehensive plan for sanitary sewer, potable water, solid waste, drainage, and recreation.
Based upon the analysis conducted by staff, it has been determined that all concurrency-mandated facilities, including stormwater management, solid waste, water, wastewater, and recreation, have adequate capacity to accommodate the most intense use of the subject property under the proposed rezoning. Per Indian River County LDRs, the applicant may be required to pay utility connection and other customary fees and comply with other routine administrative procedures. As with all developments, a more detailed concurrency review will be conducted during the development review process.
As per Section 910.07 of the County’s LDRs, the conditional concurrency review examines the available capacity of each facility with respect to a proposed project. Since rezoning requests are not development projects, County regulations call for the concurrency review to be based on the most intense use of the subject property allowed within the requested zoning district. The site is within the urban service boundary therefore all essential utilities and services are either currently available at the site or can be extended to serve future development, and there is adequate capacity to accommodate the maximum potential development of the property under RM-6 zoning:
1. Size of Area to be Rezoned: ±13.2 acres
2. Existing Zoning District: RS-6, Single-Family Residential District (up to 6 units/acre)
3. Proposed Zoning District: RM-6, Multiple-Family Residential District (up to 6 units/acre)
4. Most Intense Use of Entire Property 141 dwelling units (based on 6 units/acre)
Under Existing Zoning District:
5. Most Intense Use of Entire Property 141 dwelling units (based on 6 units/acre)
Under Proposed Zoning District:
Item H - Whether the proposed amendment would result in significant adverse impacts on the natural environment.
No adverse environmental impacts are expected to result from the rezoning. The subject property is not known to contain any environmentally sensitive features such as wetlands, surface waters, or significant wildlife habitat. A review of County environmental maps indicates the site is upland designated for development. There are no conservation overlays or listed species preserves on the property. The rezoning does not authorize any specific construction or site disturbance (it only changes the zoning map designation), and so it has no direct impact on the environment. When expansion development is proposed for the subject site, a more detailed environmental analysis based on the site-specific development proposal will be conducted.
Item I - Whether the proposed amendment would result in an orderly and logical development pattern, specifically identifying any negative effects on such pattern.
The proposed rezoning will facilitate an orderly and logical development pattern in this area. By establishing a single consistent zoning across the entire parcel, the amendment promotes a coordinated development of the property, as opposed to a piecemeal or disjointed pattern that might result from split zoning. The RM-6 zoning is appropriate for this location given the surrounding context: it provides a low-density residential designation that accommodates a range of housing types while remaining consistent with the site’s L-2 future land use designation. Located along a major corridor and adjacent to a mix of residential, commercial, and light industrial zoning, the unified RM-6 zoning will allow the site to function as a compatible transition area within the broader Oslo Road corridor. This zoning coherence will support a built form that integrates appropriately with surrounding uses, thereby contributing to a cohesive and well-planned development pattern.
Item J - Whether the proposed amendment would conflict with the public interest and is in harmony with the purpose and interest of the land development regulations.
Staff have not identified any adverse impacts to public welfare and finds that the request aligns with the purpose and intent of the land development regulations. The proposed amendment is consistent with established planning principles and supports the broader objectives of promoting orderly growth and compatible land use. The rezoning can be seen as furthering the public interest by enabling a type of development (affordable/workforce housing opportunities, efficient land use) that the community has identified as needed. As such, the request is deemed to be in harmony with the County's regulatory framework and community development goals.
Item K - Any other matters that may be deemed appropriate by the planning and zoning commission or the board of county commissioners in review and consideration of the proposed amendment, such as police protection, fire protection, and emergency medical services.
Based upon the analysis conducted by staff, it has been determined that all concurrency-mandated facilities, have adequate capacity to accommodate the most intense use of the subject property under the proposed rezoning. The subject property is in an area of the County that is readily serviceable by existing police, fire, and emergency medical facilities. The Indian River County Sheriff’s Office provides law enforcement in the unincorporated area; routine patrols already cover the Oslo Road corridor, and no issues are foreseen in extending coverage to the new development. Fire protection and EMS are provided by Indian River County Fire-Rescue. The nearest fire-rescue station (Station #8, located at 1900 74th Avenue SW, or another nearby station) can respond to the site within the acceptable response times set by the County’s level of service.
BUDGETARY IMPACT
There are no budgetary impacts associated with this request.
PREVIOUS BOARD ACTIONS
There have been no previous applications for rezoning of the subject property. The Planning and Zoning Commission, at its regular meeting on May 8, 2025, unanimously recommended approval of the rezoning request.
POTENTIAL FUTURE BOARD ACTIONS
The rezoning request, if approved, is final and runs with the land. No future board action would be needed for this request.
STAFF RECOMMENDATION
Recommended Action
Based on the analysis, staff recommends that the Board of County Commissioners approve this request to rezone the subject +/- 13.2 acres from RS-6 to RM-6.