Staff Report to the Municipal Planning Board August 18, 2015 L D C 2 0 1 5-0 0 3 0 6 I TEM # 1 0 H I G H WAY D I G I TA L S IGNS L AND D E V E L O M P E N T C O D E A M E N D M E N T A DDENDUM S U M M A RY Owner N/A Applicant City of Orlando Project Planner Jason Burton, AICP Description of the Request: Amend the Chapter 64 of the Land Development Code (the Sign Code), adding Section 64.401, to create special sign districts for certain activity centers along limited access roadways. Allows architecturally enhanced monument signs containing a digital sign up to 400 square feet in size under certain circumstances; subject to operation, resolution, setback, and other performance standards. Staff s Recommendation: Approval of the request. Public Comment Staff posted this item on the City s website, and place a classified ad in the Orlando Sentinel. No public comments have been received as of the date of the Staff Report. Updated: August 17, 2015 A N A LY S I S Overview. It is proposed that only DRI s or urban villages of 500 acres or greater with access from two interchanges be eligible for Highway Digital Signs, in order to further limit the potential amount of these signs within the City. This reduces the likelihood of existing digital billboards along Interstate-4 coming into visual conflict with a potential highway digital sign in the Millenia area (which was proposed in the previous staff report). Analysis. The Millenia area has digital billboards today, whereas the other areas proposed (Lake Nona, Universal) do not; staff wishes to further limit the eligible locations of Highway Digital Signs in order to reduce the potential of creating additional sign clutter. Revised Draft Ordinance and Maps. On the following pages includes an edit to the draft ordinance to reflect these new requirements. The map shown as Figure 64.401-3 in the original staff report will be deleted from the proposed staff recommendation.
Page 2 DRAFT ORDINANCE LANGUAGE Revised edits are shown in BOLD CAPS below: PART 8. SPECIAL SIGN DISTRICTS **** Sec. 64.401. Highway Digital Sign District (a) District and subdistricts established. There is hereby established a Highway Digital Sign District, with three subdistricts to be known as the Universal Studios Subdistrict, the Lake Nona Subdistrict and the Millenia Subdistrict. The boundaries of the district and each of the subdistrict are depicted in Figures 64.401-1, 64.401-2 and 64.401-3. All district and subdistrict boundaries follow the centerline of the public rights-of-way show in these figures. Notwithstanding any other provision of the City s Land Development Code to the contrary, within the Highway Digital Sign District, and its subdistricts, the following sign regulations of this section apply. Unless otherwise provided in this section, and then only to the extent necessary to implement the provision of this section, all other ordinances of the City remain effective and applicable to signs within the Highway Digital Sign District, and its subdistricts. {Editors Note: INSERT MAPS OF THREE SUBDISTRICTS HERE} (b) Purpose and intent. The regulations of this section are intended to allow digital signs along limited access right-ofways for activity centers that are Development of Regional Impacts (or its equivalent), which allow for on-site identification opportunities that function as wayfinding to destinations within the subdistrict from the adjacent limited access roadway, controlled by a master developer. (c) Highway Digital Sign requirements. The following design and function requirements apply to potential digital signs along limited access roadways: 1. ELIGIBLE DEVELOPMENTS. AN ACTIVITY CENTER OR URBAN VILLAGE THAT IS GREATER THAN 500 ACRES IN SIZE WITH AT LEAST TWO INTERCHANGES THAT ACCESS THE DEVEL- OPMENT IS ELIGIBLE FOR HIGHWAY DIGITAL SIGN DISTRICTS. 2. Number of Signs. Each eligible activity center shall be allowed one highway digital sign for each interchange that is adjacent to the activity center, placed visible to a limited access roadway: A. Universal Studios. Two signs (Kirkman Road, and Universal Blvd/Adventure Way interchanges) B. Lake Nona. Three signs (Boggy Creek Road, Lake Nona Blvd and Narcossee Road interchanges). 2. Size and Height. The highway digital sign area is limited up to 400 square feet facing in opposite directions. The height of the highway digital sign is limited to 30-ft; however, architectural details and a single static sign identifying the activity center may be placed up to 40-ft. All height measurements shall be taken from the nearest grade of the adjacent limited access roadway. 3. Location. The placements of highway digital signs shall be setback a minimum of 150-ft from the nearest outside curb of the adjacent limited access roadway of the general travel lanes of the roadway (or the logical continuation of these line), and not the off-ramps. 4. Setbacks. Highway digital signs shall be setback a minimum of 400-ft from residentially zoned properties. Each highway digital sign shall be separate a minimum distance of one-half mile from any other highway digital sign. 5. Operations. The operation rules of Section 64.277 (3) shall apply for light, change of message and other functions. Highway digital signs shall have color rendition capabilities and a minimum resolution of 72 dots per square inch. 6. Number of Elements. The highway digital sign shall be limited to display three elements at any given time, and shall be limited to a single message. For instance, only one commercial static message. However, each display is limited to three elements (the name of the store or event, address/location, the date/time, photo/graphic, tagline, etc. shall each be considered one element) in order to reduce the perception of sign clutter on the copy of the highway digital sign. 7. On-Site Messages Only. The highway digital signs are limited to wayfinding messages towards on-site destinations within each subdistrict. {Continued on next page }
Page 3 8. Architectural Enhancement. The highway digital signs shall match a unified master sign program developed for each subdistrict/activity center. To ensure this standard is met, the following shall apply: A. Appearance Review. A formal appearance review process is required for each highway digital sign prior to permitting, approved by the Planning Official, to document approval of the appearance and location of the sign in compliance with this section. B. Architectural Treatment. The design of the highway digital sign shall incorporate the architectural details of principal buildings of primary importance within each subdistrict, or a consistent architectural theme. The overall design of the sign shall incorporate three dimensional architectural elements into the design. C. Materials. The signs shall incorporate consistent durable materials and details to create a base, middle and top or a unique design aesthetic that is specifically incorporated into the subdistrict. D. Lighting. Any lighting shall emphasize or highlight the architectural details of the sign. Cabinet, backlit or similar types of sign treatments are prohibited. All lighting fixtures shall meet the City s lighting ordinance (full cut-off) and not spill above the sign. E. Monument sign. The digital highway sign shall be a monument sign or ground mounted sign. If the sign is two sided, the sides of each sign shall face in opposite directions. Pole signs are not allowed.
Staff Report to the Municipal Planning Board August 18, 2015 L D C 2 0 1 5-0 0 3 0 6 I TEM # 1 0 H I G H WAY DIGITA L SIGNS L AND DEVELOMPENT CODE A M ENDMENT S U M M A RY Owner N/A Applicant City of Orlando Project Planner Jason Burton, AICP Description of the Request: Amend the Chapter 64 of the Land Development Code (the Sign Code), adding Section 64.401, to create special sign districts for certain activity centers along limited access roadways. Allows architecturally enhanced monument signs containing a digital sign up to 400 square feet in size under certain circumstances; subject to operation, resolution, setback, and other performance standards. Staff s Recommendation: Approval of the request. Public Comment Staff posted this item on the City s website, and place a classified ad in the Orlando Sentinel. No public comments have been received as of the date of the Staff Report. Updated: August 12, 2015 A N A LY S I S Overview. Staff is proposing new special sign districts in certain activity centers and urban villages controlled by a master developer, which allow for digital signs along limited access roadways (freeways and expressways). These activity centers are located off of these roadways and are accessed via adjacent interchanges. Such signs would display on-site messages related to the activity centers themselves (such as retail shops in the adjacent area and special events), because the unique focus in these activity centers create their own town centers and pedestrian areas. Rather than have a series of on-site signs along the side of these roadways, it is proposed that these signs be consolidated into a single sign near each interchange adjacent to the activity center. Each sign and its associated structure would need to be architecturally enhanced. Current Digital Sign Philosophy. While the City currently has a ban on digital message centers, the City has been amenable to different sign technologies on a limited basis when they consolidate signs and reduce overall sign clutter. For instance, the City has a digital billboard exchange program where off-site signs are traded and removed, in order to gain a digital billboard on the City s limited access roadways. The City has also allowed electronic signs in the Downtown Special Sign District, which include special on and off-site signage rights on digital screens for major projects in order to add to the vibrant entertainment district that Downtown has become. In Downtown particularly, these signs include full motion video due to the pedestrian nature of Downtown, and its desire of maintaining its status as the entertainment and cultural capital of Central Florida. Eligible Activity Centers. City staff is proposing three potential Special Sign Districts, outside of the Traditional City, where these signs would be eligible for installation: Universal Studios, Lake Nona Town Center, and Millenia Mall (maps attached). Universal Studios is an activity center that contains two theme parks, a nightlife-entertainment district and a water park under construction. Its position in the City of Orlando is unique, as the other theme parks in the area are located outside typical local jurisdictions, with Disney World having its own municipality the Reedy Creek Improvement District. These areas have benefitted from creating their own signage regulations, or working within the County s code to take advantage of signage rights. Many times, this has resulted in digital signs that advertise certain shopping and special event opportunities for those resorts. The Universal Studios area is accessed by two different interchanges at Kirkman and Universal Boulevards. The project pre-dates the Development of Regional Impact (DRI) process, having a binding letter from the State of Florida that grants rights to the master developer in lieu of a
Page 2 Lake Nona Town Center is an emerging town center that will grow around the multiple life science, hospital and educational institutions that call the area home. There are three interchanges that access the area around Lake Nona and lead to the distinct environs of the Lake Nona Town Center, Medical City and Education Village. The master developer is Tavistock Group, which is now building the Town Center area between the Nemours Campus and the Burnham Institute. Millenia Mall is the premiere shopping destination of Central Florida. Tax increment financing was utilized to fund the interchange improvement for Conroy Road with Interstate 4, which led to the explosion of retail development of the mall and its surroundings. Major retailers, such as Ikea, are located in the DRI, but do not have visibility from the Interstate. Additionally, there are several office buildings in the area that support this urban activity center. Similar signage has been approved at the Fashion Square Mall as part of their last DRI amendment which is currently undergoing redevelopment to add hotel, commercial and residential uses. Architecturally Enhanced Sign Requirement. Staff believes that these types of signs should not appear as billboards or regular signage, but as part of a master sign program that creates an architectural theme for these signs that matches the motifs and details of the architecture in each activity center. Thus, such signs must be monument signs, up to 30-ft in height, with architectural details that are allowed up to 40-ft in height, as measured from the adjacent limited access roadway. Millenia is a good example of a signage system that incorporates a consistent architectural treatment that unifies the signage of the area and reduces overall sign clutter, while providing a theme that matches the surrounding architecture. The new signs proposed for these eligible locations shall undergo an appearance review to ensure architectural harmony with this concept. Location of Signs. Restrictions on the placement of these signs are intended to limit their placement so they do not conflict with each other and do not impact residential areas. Only one sign is allowed per interchange (the eligible interchanges are described above), yet these signs are not required to be placed directly at the interchange. These signs will also be required to be on private property, and set back a minimum of 150-ft from the outside curb of the adjacent limited access roadway in order to allow for consistent setbacks with the City s billboard requirements. Further, a distance separation of 0.5-miles is required between signs, to lessen their visual impact and prevent sign clutter. Similar to existing electronic billboard exchange requirements, a 400-ft separation will be placed between these signs and residentially zoned districts as a requirement. Size of Sign Area, Operation Rules. The proposed digital highway sign is limited to 400-square feet in area, with signs facing in opposite directions. The operational rules of digital signs (which require light dimming and limits changes in messages to no greater than every 8 seconds without motion) found in Chapter 64.277(3) shall apply. This creates a level of consistency and reduces potential impacts of light spill and distractions to drivers. Additionally, it is proposed that each message displayed on the sign is limited to a single advertisement of an on -site commercial or institutional use within the special sign district to reduce the perception of sign clutter (e.g. Ikea and Macy s could not be displayed concurrently); special events are also allowed. This allows for the sign to serve as a wayfinding function towards these destinations. However, these signs are proposed to restrict product and service messages, which do not have a wayfinding function but are strictly advertisements. When other information is displayed for the allowed messages, it is limited to three elements (name of event, location, date/time for a special event or a photo, brand, tagline or other text considered as an individual element) in order to limit clutter and to convey the message (see the examples on the following pages). Color capabilities and a minimum artwork resolution of 72 dpi (dots per square inch) or greater is required in order for the technology to be adequate enough to not have an aesthetic impact. On-Site Message Limitation and Number of Elements. Signs are limited to on-site messages that advertise commercial and institutional uses of each adjacent activity center. Residential subdivisions surrounding the activity center are not intended to be advertised and will not be considered on-site advertising. A proposed special sign district map is attached to show the locations of the proposed special sign districts. Products and services are not eligible to be advertised on these signs, as these signs are intended to support commercial wayfinding messages of the adjacent activity center. A draft code amendment is attached, subject to final review and approval by the City Attorney s Office. FINDINGS In review of the proposed LDC amendment, it is found that: 1. The proposed Land Development Code amendment is consistent with the State Comprehensive Plan (Chapter 187, Florida Statutes). 2. The proposed Land Development Code amendment is consistent with the East Central Florida Strategic Regional Policy Plan. 3. The proposed Land Development Code amendment is consistent with the provisions of Chapter 163, Part II, Florida Statutes. 4. The proposed Land Development Code amendment is consistent with the objectives and policies of the City s adopted Growth Management Plan (GMP).
Page 3 DRAFT ORDINANCE LANGUAGE: PART 8. SPECIAL SIGN DISTRICTS **** Sec. 64.401. Highway Digital Sign District (a) District and subdistricts established. There is hereby established a Highway Digital Sign District, with three subdistricts to be known as the Universal Studios Subdistrict, the Lake Nona Subdistrict and the Millenia Subdistrict. The boundaries of the district and each of the subdistrict are depicted in Figures 64.401-1, 64.401-2 and 64.401-3. All district and subdistrict boundaries follow the centerline of the public rights-of-way show in these figures. Notwithstanding any other provision of the City s Land Development Code to the contrary, within the Highway Digital Sign District, and its subdistricts, the following sign regulations of this section apply. Unless otherwise provided in this section, and then only to the extent necessary to implement the provision of this section, all other ordinances of the City remain effective and applicable to signs within the Highway Digital Sign District, and its subdistricts. {Editors Note: INSERT MAPS OF THREE SUBDISTRICTS HERE} (b) Purpose and intent. The regulations of this section are intended to allow digital signs along limited access right-ofways for activity centers that are Development of Regional Impacts (or its equivalent), which allow for on-site identification opportunities that function as wayfinding to destinations within the subdistrict from the adjacent limited access roadway, controlled by a master developer. (c) Highway Digital Sign requirements. The following design and function requirements apply to potential digital signs along limited access roadways: 1. Number of Signs. Each eligible activity center shall be allowed one highway digital sign for each interchange that is adjacent to the activity center: A. Universal Studios. Two signs (Kirkman Road, and Universal Blvd/Adventure Way interchanges) B. Lake Nona. Three signs (Boggy Creek Road, Lake Nona Blvd and Narcossee Road interchanges). C. Millenia. One sign (Millenia Blvd interchange). 2. Size and Height. The highway digital sign area is limited up to 400 square feet facing in opposite directions. The height of the highway digital sign is limited to 30-ft; however, architectural details and a single static sign identifying the activity center may be placed up to 40-ft. All height measurements shall be taken from the nearest grade of the adjacent limited access roadway. 3. Location. The placements of highway digital signs shall be setback a minimum of 150-ft from the nearest outside curb of the adjacent limited access roadway of the general travel lanes of the roadway (or the logical continuation of these line), and not the off-ramps. 4. Setbacks. Highway digital signs shall be setback a minimum of 400-ft from residentially zoned properties. Each highway digital sign shall be separate a minimum distance of one-half mile from any other highway digital sign. 5. Operations. The operation rules of Section 64.277 (3) shall apply for light, change of message and other functions. Highway digital signs shall have color rendition capabilities and a minimum resolution of 72 dots per square inch. 6. Number of Elements. The highway digital sign shall be limited to display three elements at any given time, and shall be limited to a single message. For instance, only one commercial static message. However, each display is limited to three elements (the name of the store or event, address/location, the date/time, photo/graphic, tagline, etc. shall each be considered one element) in order to reduce the perception of sign clutter on the copy of the highway digital sign. 7. On-Site Messages Only. The highway digital signs are limited to wayfinding messages towards on-site destinations within each subdistrict. {Continued on next page }
Page 4 8. Architectural Enhancement. The highway digital signs shall match a unified master sign program developed for each subdistrict/activity center. To ensure this standard is met, the following shall apply: A. Appearance Review. A formal appearance review process is required for each highway digital sign prior to permitting, approved by the Planning Official, to document approval of the appearance and location of the sign in compliance with this section. B. Architectural Treatment. The design of the highway digital sign shall incorporate the architectural details of principal buildings of primary importance within each subdistrict, or a consistent architectural theme. The overall design of the sign shall incorporate three dimensional architectural elements into the design. C. Materials. The signs shall incorporate consistent durable materials and details to create a base, middle and top or a unique design aesthetic that is specifically incorporated into the subdistrict. D. Lighting. Any lighting shall emphasize or highlight the architectural details of the sign. Cabinet, backlit or similar types of sign treatments are prohibited. All lighting fixtures shall meet the City s lighting ordinance (full cut-off) and not spill above the sign. E. Monument sign. The digital highway sign shall be a monument sign or ground mounted sign. If the sign is two sided, the sides of each sign shall face in opposite directions. Pole signs are not allowed. Concept of a Highway Digital Sign Examples of Limited Elements in a Digital Sign Example of limited elements. The top sign shows multiple elements (a total of 7, including the name of the business, the hours of operation, a phone number, website, tagline, address and photo), where the bottom example is limited to three elements (the name of the business, a photo and a tagline). Conceptual. The Highway Digital Sign could be an architecturally enhanced monument sign of up to 40-ft in height, where the actual digital sign is up to 30-ft in height. Each one would need to be uniquely designed for each eligible activity center. Example of limited elements. This sign for a special event limits the element to three, with the name of the church, name of the event, and the date.
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