Council advances first reading to annex Flagler Pines parcel; traffic, zoning and airport proximity raise questions

The Palm Coast City Council on Feb. 18 held a lengthy discussion and advanced the first reading of an ordinance to voluntarily annex roughly 38.811 acres owned by Flagler Pines Properties, a parcel along State Road 100 adjacent to the BJ’s plaza.

Fong Wing, senior planner with the city’s Community Development Department, said voluntary annexation petitions must meet criteria in Florida Statutes, including contiguity and compactness under chapter 171.044, and must not create enclaves. Staff found the property contiguous to Palm Coast municipal boundaries and not an enclave. Wing also told the council that only two roadway segments on State Road 100 are currently over the city’s adopted level of service and that any new development would be required to mitigate impacts on over‑capacity segments through proportionate share under Florida Statute 163.3180.

Jay Livingston, the applicant’s agent, told council the typical approval sequence will follow annexation with a future land use map (FLUM) amendment, rezoning (the applicant said it intends C‑2 commercial zoning along the frontage) and then a technical site plan. Livingston said the annexation is tied to a 2007 water settlement and that the project requires city water. He said the applicant’s plan is to pursue commercial zoning across the site but acknowledged the county currently has a mixed county-level designation that includes a multifamily area.

Vice Mayor Panieri and several council members pressed the applicant about timing and the risk that the property’s multifamily zoning rights could be exercised if the owner pursued development in the county before a city rezoning. Panieri said she was concerned that the city would be “annexing in knowing what their zoning currently is” and that the council should have more assurances before final approval. Council members also raised airport‑overlay concerns for residences near the airport and said traffic capacity on State Road 100 has been a long‑running issue that is typically resolved through DOT projects over time.

Deputy director Ray Tyner told the council staff could sequence hearings so the annexation second reading occurs after the FLUM amendment and rezoning applications have been routed through planning board and the required public hearings, giving council members the ability to review those applications before final adoption.

Members of the public also commented. One resident said the property’s ownership and potential airport terminal plans are tied to a $5 million grant and urged the council to consider the end game for the land; another resident asked what direct benefit annexation would bring to current Palm Coast households if the property allowed up to 255 multifamily units under current plan language.

The council voted on the first reading. Vice Mayor Panieri recorded a No vote; Council Member Gambarra recorded Yes; Council Member Miller recorded Yes. The Mayor’s recorded vote was not specified in the transcript. Council discussion before the vote included motions to approve the ordinance on first reading and directions to staff and the applicant to advance FLUM and zoning applications for concurrent review.

Next steps described by staff and the applicant include submission of a traffic impact analysis meeting city methodology, FLUM amendment and rezoning applications, planning board review, and subsequent council hearings. If the site’s projected trips exceed adopted roadway capacity, mitigation obligations would be determined by proportionate‑share calculations tied to the applicable statutory framework.