TO: Board of County Commissioners
THROUGH: John A. Titkanich, Jr.; County Administrator
FROM: Patrick J. Murphy; Chief, Long-Range Planning
DATE: September 24, 2025
SUBJECT: Laurel Homes, Inc.’s Request to Rezone Approximately ±9.24 Acres
from A-1, Agriculture District to RM-8, Multiple-Family Residential District
(2025-02-0001 / 98259)
__________________________________________________________________
BACKGROUND
The subject property is situated on the North side of 16th Street and approximately 600 feet West of 66th Avenue. The parcel is located south of and adjacent to the Central Assembly of God Church, one-half mile west of Indian River State College, and within one mile of the Indian River Mall to the northeast; placing it in proximity to established institutional and regional commercial uses. In addition, the property lies within the SR 60 Corridor Plan Area as described in Section 911.19 of the Land Development Regulations. These regulations are intended to promote an attractive and orderly corridor through enhanced landscaping, quality building design, and coordinated signage, consistent with the vision of SR 60 as a significant business and residential center.
The overall parcel comprises ±9.24 acres and is currently zoned A-1, Agricultural District (Attachment 1). The applicant seeks to rezone the A-1 parcel to RM-8, Multiple-Family Residential (up to 8 units/acre) to establish zoning that is consistent with the surrounding land use pattern. The rezoning application states the future project aims to develop an affordable housing community. The purpose of this request is to secure the zoning necessary to develop the site with future uses permitted in the RM-8 zoning district.
The subject property lies within the Urban Service Area (USA) and carries a Future Land Use designation of M-1, Medium-Density Residential-1 (Attachment 2). While the parcel is presently zoned A-1 (Agricultural-1), the Comprehensive Plan specifies under AGRICULTURAL LAND (Page 107) that “all land designated for agricultural use is located outside the urban service area” and notes that “within the county, agriculture is in a state of decline. In this context, the purpose of this request is to rezone the property consistent with its Medium-Density Residential designation and to allow development at an intensity appropriate for the Urban Service Area (USA).
Existing Land Use Pattern
The surrounding area reflects a development pattern characteristic of the 16th Street corridor, with an established mix of multiple-family residential, single-family residential, and institutional uses.
Directly north of the subject site is the Central Assembly of God Church. To the northeast, at the intersection of 20th Street and 66th Avenue, RM-8 zoning reinforces the established pattern of multiple-family development. East of the site, lands are zoned RM-6, while to the west, the zoning transitions from RM-8 to RM-6 to RS-6 along 16th Street, reflecting a gradual reduction in density. South of the property, across 16th Street, the land use pattern consists of undeveloped parcels and single-family lots zoned A-1.
The subject property lies within the County’s Urban Service Area and is designated M-1, Medium Density Residential, on the Future Land Use Map. The surrounding pattern clearly demonstrates that multiple-family residential use is established in this portion of the urban corridor. Rezoning the parcel from A-1 to RM-8 will secure consistency with the Future Land Use designation and provide for an orderly extension of the existing residential development pattern. The requested rezoning will promote infill development supporting logical growth and integration with adjacent RM-6 and RM-8 residential properties. The land south of the subject property is outside the USA.
Zoning District Comparison
In terms of permitted uses, there are both similarities and differences between the existing A-1 district and the proposed RM-8. The respective zoning districts’ purpose statements best illustrate the distinctions between the districts. These purpose statements, as provided in the County’s Land Development Regulations (LDRs), set forth the intent and objectives of each district and serve as the framework for evaluating the proposed rezoning request:
A-1: Agricultural-1 District: This District is intended to provide areas suitable for agriculture, silviculture, and the conservation and management of open space, vegetative cover, natural systems, aquifer recharge areas, wildlife areas, and scenic areas. These districts are also intended to provide opportunities for residential uses at very low densities to promote housing opportunities in the county. These districts are further intended to permit activities that require non-urban locations and do not detrimentally impact lands devoted to rural and agricultural activities.
RM-8: Multiple-Family Residential District (up to 8 units/acre): This district is intended to provide areas suitable for medium-density multiple-family residential development, as well as single-family dwellings, up to 8 units per acre. The RM-8, Multiple-Family Residential District is intended to ensure adequate public facilities to meet the needs of residents, as well as provide a varied and diverse housing supply.
ANALYSIS
Section 902.12(3) of the LDRs 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-8 zoning and the County’s LDRs. Both the current A-1 zoning and the proposed RM-8 zoning are established districts under the LDRs, but RM-8 is the appropriate implementing zone for the property’s M-1 future land use designation. The rezoning represents a change from agricultural and very low-density residential uses to multiple-family residential use at a maximum density of 8 units per acre, consistent with the Comprehensive Plan.
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-8 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 (Objective 1: Compact, Energy Efficient, Low-Density Development). The subject property is located within the Urban Service Area and fronts 16th Street, a collector roadway with county water and sewer service available. By focusing development on this infill site consistent with its Medium- Density Residential designation, the rezoning advances the Plan’s intent to concentrate growth where it can be most efficiently served (Objective 1), thereby discouraging sprawl and ensuring effective use of infrastructure investments.
In addition, the Comprehensive Plan provides that all residential development greater than 0.2 units/acre and all non-agricultural uses shall be located within the Urban Service Area (Objective 2). Policy 2.2 further specifies that the County shall encourage and direct growth into the Urban Service Area through zoning and the application of LDRs. Since the proposed rezoning would allow multiple-family residential development on the subject property, and the property lies within the Urban Service Area, the request directly implements Policy 2.2 by aligning the zoning with the site’s designated land use and reinforcing the County’s growth management strategy. (See Attachment 3 for a zoning district comparison table)
Future Land Use Designation: The property’s future land use is M-1 (Medium-Density Residential-1), which permits residential uses up to 8 dwelling units per acre (Policy 1.13: M-1 is intended for residential uses up to 8 units/acre, located within the Urban Service Area). The requested RM-8 zoning directly implements this designation by allowing a multiple-family residential form consistent with the permitted density. As stipulated by the Comprehensive Plan, the residential densities shown on the Future Land Use Map represent maximums; the proposed RM-8 zoning will not exceed the M-1 density cap and therefore remains fully consistent with Policy 1.13.
Housing Variety and Land Use Compatibility: The Comprehensive Plan (Plan) encourages a diverse mix of housing types and a balanced distribution of residential densities. 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 16th Street (a collector), is adjacent to an established public/institutional use (Central Assembly of God Church), is in close proximity to Indian River State College (approximately 0.5 miles west) and the Indian River Mall (approximately one mile northeast), and is surrounded by existing RM-6 and RM-8 zoning districts.
By meeting the planning guidelines of FLU Policy 1.43, 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-8 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 M-1 (Medium Density Residential) is intended for residential development up to 8 units per acre. While the existing A-1 zoning does not implement or correspond to the M-1 designation, RM-8 is an allowed and appropriate implementing district. As such, the rezoning will bring the property’s zoning into conformity with its Future Land Use designation.
Item D - Whether the proposed amendment follows the adopted county thoroughfare plan.
The County’s Thoroughfare Plan identifies 16th Street as an east-west collector serving this portion of the Urban Service Area. The subject property has direct frontage on 16th Street, providing suitable access for urban residential development. Concentrating multiple-family residential use at this location is consistent with thoroughfare planning principles, as collector roadways are designed to accommodate higher traffic volumes associated with suburban infill development. At the time of development review, the project will be required to meet all applicable access management, driveway spacing, and roadway design standards under the County’s Thoroughfare Plan and Land Development Regulations. The rezoning itself does not propose any changes to roadway alignments or classifications and remains fully consistent 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. Under the current A-1 zoning, the property could yield approximately one (1) dwelling unit. Based on the ITE Trip Generation Manual (11th Edition), detached single-family housing generates 9.43 daily trips. Under the proposed RM-8 zoning, the property could support up to 73 multifamily units, generating about 526 daily trips (7.2 daily trips for attached single-family housing). This represents a net increase of 525 daily trips at full buildout. The applicant’s Traffic Impact Analysis (TIA) identifies 16th Street (66th Avenue to 74th Avenue) and 66th Avenue (16th Street to SR 60) as the project’s area of influence.
The analysis shows that both 16th Street and 66th Avenue are currently operating well within their adopted level of service capacities, with existing volumes at approximately 26%-58% of available capacity. The additional project trips would not cause any roadway segment or intersection to fall below the level of service standards adopted in the Comprehensive Plan’s Transportation Element. At the site plan stage, concurrency and access management review will ensure compliance with all roadway standards.
Item F - Whether there have been changed conditions which would warrant an amendment.
Since the establishment of A-1 zoning on the subject property, the development context along the SR 60 (20th Street) corridor has shifted significantly, with increased commercial, institutional, and multiple-family residential uses. The Indian River Mall and surrounding commercial centers anchor this corridor, while Indian River State College, located less than one-half mile to the east, introduces a major institutional presence supportive of higher-density residential uses. Multiple-family developments zoned RM-6 and RM-8 have been established behind properties fronting SR 60, reflecting the corridor’s evolution toward a more urbanized pattern of residential growth. The applicant’s stated intent to provide affordable housing is consistent with County policy direction encouraging a range of housing options within the Urban Service Area. In this context, the subject property’s A-1 zoning no longer reflects the area’s development character or its M-1 future land use designation. Rezoning to RM-8 represents policy-consistent transition that aligns the property with surrounding land use patterns and supports the Comprehensive Plan’s objectives for compact, efficient, and diverse residential development within the Urban Service Area.
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-8 zoning:
1. Size of Area to be Rezoned: ±9.24 acres
2. Existing Zoning District: A-1, Agricultural District (up to 1 unit/5acres)
3. Proposed Zoning District: RM-8, Multiple-Family Residential District (up to 8 units/acre)
4. Most Intense Use of Entire Property 1 dwelling unit (based on 1 unit/5acre)
Under Existing Zoning District:
5. Most Intense Use of Entire Property 73 dwelling units (based on 8 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. 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 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 replacing the existing A-1 zoning with RM-8, the amendment brings the parcel into conformity with its M-1 future land use designation and aligns it with the surrounding multiple-family residential context. The RM-8 zoning is appropriate for this location given the proximity to SR 60, adjacent RM-6 and RM-8 districts, and nearby institutional and regional commercial anchors. Establishing RM-8 zoning on the property will allow the site to transition from its current agricultural use to residential development when market demand arises, consistent with the Comprehensive Plan’s vision for this corridor.
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 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 SR 60 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.
BUDGETARY IMPACT
There are no budgetary impacts associated with this request.
PREVIOUS BOARD ACTIONS
There have been no previous applications to rezone the subject property. The Planning and Zoning Commission, at its regular meeting on September 11, 2025, unanimously recommended approval of the rezoning request.
POTENTIAL FUTURE BOARD ACTIONS
The request to change the zoning designation of the property is final and runs with the land. No future board action would be needed to effectuate the request.
STAFF RECOMMENDATION
Recommended Action
Based on the analysis and conclusions outlined in this report, staff and the Planning and Zoning Commission recommend that the Board of County Commissioners approve the request to rezone the ±9.24-acre subject parcel from A-1 to RM-8.