HomeMy WebLinkAboutItem 3a - Impact Fee Needed: Roadway - Community Development Director Wagner CITY OF OCOEE TRANSPORTATION IMPACT FEE UPDATE
FINAL REPORT
Prepared for:
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CITY OF OCOEE
Prepared by:
RENAISSANCE PLANNING GROUP
May 2004
RENAISSANCE PLANNING GROUP City of Ocoee Transportation Impact Fee Final Report
INTRODUCTION
The City of Ocoee continues to experience rapid residential and commercial growth due to
its desirable location within the Orlando metropolitan area, availability of vacant land and
affordable housing, and excellent access to the region's limited access and arterial roadway
network. With such growth comes the challenge to ensure that the City is properly planning for
and funding needed long term transportation improvements.
This summary report documents revisions to the City's traffic impact fees (TIF) paid by
new development. Because impact fees are designed to compensate localities for the transportation
impacts created by new development, periodically updating the underlying assumptions used to
calculate the impact fee ensures a reasonable relationship, or nexus, between development impacts
and the corresponding impact fee levied. Doing so allows the City to capture as much revenue as
possible through traffic impact fees to fund roadway projects in response to new growth while also
making the City's impact fees more legally defensible and less open to challenge.
The City's current TIF program was last evaluated in 1998. That process represented a
comprehensive update to the TIF program. By comparison, the analysis documented here
represents a summary update to the TIF program. As such, it should be emphasized that the
original report prepared in 1998 is still valid and forms the basis for this update.
RECOMMENDATIONS
Based on the technical analysis documented in this report, it is recommended that the City
Commission adopted the revised TIF rate schedule shown in Table 1. The new TIF rates are
approximately 113 percent greater than the City's current TIF rate schedule as shown in Table 2.
While this is a substantial increase, it is justified based on the underlying technical analysis regarding
the individual components of the TIF formula discussed below, particularly regarding the rapidly
increasing cost of constructing additional roadway capacity. While no one revenue source will fully
cover the impacts of new development on public infrastructure and facilities, the City's relative
lack of other revenues to fund its long-term transportation priorities makes fully applying its TIF
rates all the more important. Doing otherwise shortchanges available roadway revenues paid by
new development and shifts the burden of constructing roadway capacity to existing residents and
taxpayers through higher gas, sales, or other taxes. As discussed in this report, even with the new
recommended TIF rate schedule, new development will pay only approximately 44 percent of the
total $163.5 million of roadway improvements necessary through 2025.
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RENAISSANCE PLANNING GROUP City of Ocoee Transportation Impact Fee Final Report
TABLE 1: RECOMMENDED TRAFFIC IMPACT FEE RATE SCHEDULE
Vehicle Miles
Traveled Cost per Full Impact Credit per Net Impact
Land Use Unit (VMT) VMT Fee VMT(0%) Fee
RESIDENTIAL
Single Family Dwelling Unit 15.31 $276.14 $4,228.72 $16.99 $3,968.60
Apartment Dwelling Unit 10.61 $276.14 $2,929.61 $16.99 $2,749.41
Condominium/Townhouse Dwelling Unit 9.38 $276.14 $2,589.37 $16.99 $2,430.10
Mobile Home Dwelling Unit 7.70 $276.14 $2,125.41 $16.99 $1,994.67
Congregate Care Facility Dwelling Unit 3.44 $276.14 $950.03 $16.99 $891.59
LODGING
Hotel-Motel Occupied Room 13.29 $276.14 $3,668.87 $16.99 $3,443.19
OFFICE
less than 100,000 SF 1,000 SF 24.44 $276.14 $6,747.91 $16.99 $6,332.83
100,000 to 200,000 SF 1,000 SF 18.94 $276.14 $5,229.71 $16.99 $4,908.02
greater than 200,000 SF 1,000 SF 16.82 $276.14 $4,645.24 $16.99 $4,359.50
Medical-Dental 1,000 SF 50.50 $276.14 $13,945.45 $16.99 $13,087.64
Business Park 1,000 SF 17.80 $276.14 $4,914.64 $16.99 $4,612.33
RETAIL
less than 50,000 SF 1,000 SF GLA 35.73 $276.14 $9,865.21 $16.99 $9,258.39
49,999 to 100,000 SF 1,000 SF GLA 23.64 $276.14 $6,528.59 $16.99 $6,127.00
100,000 to 199,999 SF 1,000 SF GLA 24.93 $276.14 $6,884.82 $16.99 $6,461.32
200,000 to 299,999 SF 1,000 SF GLA 27.95 $276.14 $7,719.01 $16.99 $7,244.20
300,000 to 399,999 SF 1,000 SF GLA 28.45 $276.14 $7,855.29 $16.99 $7,372.09
400,000 to 499,999 SF 1,000 SF GLA 28.33 $276.14 $7,822.39 $16.99 $7,341.22
500,000 to 999,999 SF 1,000 SF GLA 31.01 $276.14 $8,561.97 $16.99 $8,035.31
1,000,000 to 1,250,000 SF 1,000 SF GLA 32.18 $276.14 $8,885.72 $16.99 $8,339.14
greater than 1,250,000 SF 1,000 SF GLA 30.99 $276.14 $8,557.71 $16.99 $8,031.30
Restaurant,Quality 1,000 SF 108.74 $276.14 $30,025.77 $16.99 $28,178.82
Restaurant,High Turnover(Sit-Down) 1,000 SF 99.92 $276.14 $27,590.54 $16.99 $25,893.39
Restaurant,Fast Food 1,000 SF 106.05 $276.14 $29,284.23 $16.99 $27,482.90
Automobile Care Center 1,000 SF 16.34 $276.14 $4,510.79 $16.99 $4,233.32
Automobile Sales 1,000 SF 40.97 $276.14 $11,312.44 $16.99 $10,616.59
Gas/Service Station(GSS) Fueling Position 27.08 $276.14 $7,477.53 $16.99 $7,017.57
GSS w/Convenience Mart&car wash Fueling Position 73.18 $276.14 $20,207.56 $16.99 $18,964.55
Self Service Car Wash Stall 23.13 $276.14 $6,388.01 $16.99 $5,995.08
Supermarket 1,000 SF 74.02 $276.14 $20,438.68 $16.99 $19,181.45
Convenience Market(Open 24 Hours) 1,000 SF 142.97 $276.14 $39,478.34 $16.99 $37,049.94
Pharmacy/Drugstore 1,000 SF 35.18 $276.14 $9,713.75 $16.99 $9,116.24
SERVICES
Drive-In Bank 1,000 SF 40.10 $276.14 $11,072.98 $16.99 $10,391.86
INSTITUTIONAL
Church(Weekday) 1,000 SF 13.66 $276.14 $3,771.89 $16.99 $3,539.87
Day Care Center 1,000 SF 34.23 $276.14 $9,452.02 $16.99 $8,870.61
MEDICAL
Hospital 1,000 SF 24.16 $276.14 $6,670.24 $16.99 $6,259.94
Nursing Home 1,000 SF 2.29 $276.14 $633.23 $16.99 $594.28
RECREATIONAL
Golf Course Holes 71.94 $276.14 $19,865.00 $16.99 $18,643.07
Multipurpose Recreational Facility NA 6.53 $276.14 $1,803.67 $16.99 $1,692.73
Movie Theater w/matinee Per Screen 27.42 $276.14 $7,572.39 $16.99 $7,106.59
INDUSTRIAL
Light Industrial 1,000 SF 12.84 $276.14 $3,546.68 $16.99 $3,328.52
Manufacturing 1,000 SF 7.04 $276.14 $1,943.80 $16.99 $1,824.24
Warehousing 1,000 SF 9.14 $276.14 $2,523.89 $16.99 $2,368.64
Mini-Warehouse 1,000 SF 3.46 $276.14 $954.64 $16.99 $895.91
PORT AND TERMINAL
Truck Terminal 1,000 SF 18.15 $276.14 $5,012.16 $16.99 $4,703.86
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RENAISSANCE PLANNING GROUP City of Ocoee Transportation Impact Fee Final Report
TABLE 2: COMPARISON OF TIF RATES
Land Use Category I Unit I Existing I New I Difference
RESIDENTIAL
Single Family Dwelling Unit $1,865.97 $3,968.60 $2,102.63
Apartment Dwelling Unit $1,292.73 $2,749.41 $1,456.68
Condominium/Townhouse Dwelling Unit $1,142.59 $2,430.10_ $1,287.50
Mobile Home Dwelling Unit $937.86 $1,994.67 $1,056.81
Congregate Care Facility Dwelling Unit New Cat. $891.59 NA
LODGING
Hotel-Motel Occupied Room $1,618.931 $3,443.191 $1,824.26
OFFICE
less than 100,000 SF 1,000 SF $2,977.60 $6,332.83 $3,355.24
100,000 to 200,000 SF 1,000 SF $2,307.67 $4,908.02 $2,600.35
greater than 200,000 SF 1,000 SF $2,049.77 $4,359.50 $2,309.74
Medical-Dental 1,000 SF $6,151.89 $13,087.64 $6,935.74
Business Park 1,000 SF New Cat. $4,612.33 NA
RETAIL
less than 50,000 SF 1,000 SF GLA $4,359.57 $9,258.39 $4,898.82
49,999 to 100,000 SF 1,000 SF GLA $2,885.07 $6,127.00 $3,241.93
100,000 to 199,999 SF 1,000 SF GLA $3,031.10 $6,461.32 $3,430.22
200,000 to 299,999 SF 1,000 SF GLA $3,404.55 $7,244.20 $3,839.64
300,000 to 399,999 SF 1,000 SF GLA $3,472.09 $7,372.09 $3,900.01
400,000 to 499,999 SF 1,000 SF GLA $3,450.15 $7,341.22 $3,891.07
500,000 to 999,999 SF 1,000 SF GLA $3,776.35 $8,035.31 $4,258.96
1,000,000 to 1,250,000 SF 1,000 SF GLA $3,920.93 $8,339.14 $4,418.21
greater than 1,250,000 SF 1,000 SF GLA $3,776.19 $8,031.30 $4,255.11
Restaurant,Quality 1,000 SF $13,249.23 $28,178.82 $14,929.60
Restaurant, High Turnover(Sit-Down) 1,000 SF $12,174.65 $25,893.39 $13,718.74
Restaurant, Fast Food 1,000 SF $12,922.02 $27,482.90 $14,560.88
Automobile Care Center 1,000 SF New Cat. $4,233.32 NA
Automobile Sales 1,000 SF $4,991.75 $10,616.59 $5,624.84
Gas/Service Station(GSS) Pump $3,299.55 $7,017.57 $3,718.02
GSS w/Convenience Mart&car wash Pump New Cat. $18,964.55 NA
Self Service Car Wash Stall New Cat. $5,995.08 NA
Supermarket 1,000 SF New Cat. $19,181.45 NA
Convenience Market(Open 24 Hours)1,000 SF New Cat. $37,049.94 NA
Pharmacy/Drugstore 1,000 SF $4,286.31 $9,116.24 $4,829.93
SERVICES
Drive-In Bank 11,000 SF 1 $4,886.08 $10,391.861 $5,505.78
INSTITUTIONAL
Church(Weekday) 1,000 SF New Cat. $3,539.87 NA
Day Care Center 1,000 SF $4,170.82 $8,870.61 $4,699.79
MEDICAL
Hospital 1,000 SF $2,943.32_ $6,259.94 $3,316.62
Nursing Home 1,000 SF $279.42 $594.28 $314.86
RECREATIONAL
Golf Course Holes New Cat. $18,643.07 NA
Multipurpose Recreational Facility Acre New Cat. $1,692.73 NA
Movie Theater w/matinee Per Screen New Cat. $7,106.59 NA
INDUSTRIAL
Light Industrial 1,000 SF $1,565.01 $3,328.52 $1,763.50
Manufacturing 1,000 SF $857.73 $1,824.24 $966.51
Warehousing 1,000 SF $1,113.70 $2,368.64 $1,254.95
Mini-Warehouse 1,000 SF $387.54 $895.91 $508.37 3
PORT AND TERMINAL
Truck Terminal 11,000 SF 1 $2,211.681 $4,703.861 $2,492.18
RENAISSANCE PLANNING GROUP City of Ocoee Transportation Impact Fee Final Report
UPDATING THE TRAFFIC IMPACT FEE
Ocoee's transportation impact fee (TIF) is calculated by estimating the amount of roadway
capacity a given development consumes, known as "demand," by the cost to replace that capacity,
"supply." An allowance, or "credit," is also factored into the impact fee equation to account for
developer contributions to roadway capacity projects through other revenue sources, such as
gasoline taxes, resulting in a net impact fee. Each development category's net impact fee is based
on vehicle miles of roadway consumed, reflecting the development's traffic impact.
The following sections document the process used to update the City's TIF rate schedule. As
discussed above, this methodology builds on the City's current TIF program, adopted in 1998.
Updates were made to each component of the TIF formula described above, as shown in the
following equation:
TIF = VMT X(cost per VMT—credit per VMT), where
VMT (vehicle miles of travel) = trip rate X average trip length X percent of new trips,
Cost per VMT = the average unit cost to construct roadway capacity to serve the VMT, and
Credit per VMT = other revenues which may be spent on roadway capacity expansion projects.
Updates to each component are described in more detail below.
VMT (DEMAND COMPONENT)
Vehicle miles of travel, or VMT, represents the "transportation demand" component of the
TIF formula. Transportation demand estimates the amount of roadway capacity different types of
land uses will consume. VMT components include the number of vehicle trips that are generated
by a given land use (trip rate), the average vehicle trip length, and the percentage of those trips that
are"new"trips attracted to the land use (not diverted from the existing traffic flow).
Trip rates for each land use category are derived from the ITE Trip Generation Handbook. As
with the original TIF ordinance, the most current edition available during the update process was
the 6th Edition. (The 7th Edition was recently released, subsequent to completion of the TIF update
work effort.) Therefore, no changes were made to land use trip rates.
While trip rates for most land uses are provided in the ITE Trip Generation Handbook, there is
no comprehensive published source for average trip length data. This is because trip lengths vary
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RENAISSANCE PLANNING GROUP City of Ocoee Transportation Impact Fee Final Report
greatly between jurisdictions depending on land use patterns, the roadway network, and other
factors. For this update, current land use trip rates were strategically assessed for reasonableness
and were not substantially changed. For new categories added to the TIF rate schedule, trip rates
were derived through comparison of trip rate data for several adjacent/similar jurisdictions.
In the current TIF ordinance adopted in 1998, trip lengths were discounted to include only
the portion of travel occurring on the City's roadway network. The portion of travel on county or
state roads was not included because, at that time, the City was funding capacity improvements
only for City roads. Since that time, the City has funded major roadway improvements on county
roads, including the four laning of Maguire Road and Old Winter Garden Road. There are other
county roads, such as Ocoee-Apopka Road, for which funding responsibility for major
improvements will likely fall primarily or exclusively to the City. Accordingly, it was determined
appropriate to include the portion of travel on county roads in the calculation of trip lengths for
each land use.
As with trip lengths, there is no common reference for obtaining primary trip percentages—
the percentage of "new" trips attracted to a particular land use that are not diverted from the
existing traffic stream. A summary review of the current primary trip percentages was conducted;
this data also remained substantially unchanged.
COST PER VMT COMPONENT
Once an updated VMT, or new travel demand, is determined, it is necessary to update the
portion of the TIF formula concerning the cost to serve the new travel demand. This is perhaps the
most important aspect of the TIF formula because it provides the most direct linkage between the
cost of roadway improvements and the TIF rates charged to fund the implementation of roadway
projects. This component is also very important because the cost of roadway projects continues to
increase rapidly, particularly for ROW acquisition and roadway construction. Accordingly, great
care was taken to ensure that the updated cost component accurately captures the most current
cost data for roadway projects in Ocoee.
To do so, the five year Capital Improvement Programs (CIP) for Ocoee and Orange
County were reviewed to obtain cost information for projects fully funded for construction in the
Ocoee area. FDOT's five year work program and Metroplan's five year Transportation
Improvement Program were also reviewed. Additionally, project-to-date costs were obtained
from the City finance department regarding the four laning of Maguire Road which was
substantially complete at that time and reviewed for comparison purposes.
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RENAISSANCE PLANNING GROUP City of Ocoee Transportation Impact Fee Final Report
The cost component of the TIF formula is expressed as an average cost per lane mile to
construct roadway capacity projects. This was calculated by determining the total cost of each
Ocoee-area roadway project, the new capacity added, and the cost per new capacity expressed in
lane miles. As shown in Table 3, this results in an average cost per lane mile of $2.33 million, an
approximately 29 percent increase above the $1.78 million noted in the current TIF ordinance.
The City's average cost per lane mile of roadway capacity compares favorably to that of other
jurisdictions, as shown in Table 4.
CREDIT PER VMT COMPONENT
Recognizing that development pays other taxes and fees to fund the construction of
roadway projects, the credit component of the TIF formula avoids charging development twice to
fund the same improvements. Without credits in the fee structure, the City could be open to
potential legal challenge.
There are two local revenue sources that can potentially be used to fund capacity projects
on the City's roadway system: revenue from public utility franchise fees, including electricity,
telephone and propane gas, and revenue from Orange County generated by the local option
gasoline tax (LOGT).
Using the same methodology employed to develop the current TIF rate schedule, LOGT
and utility franchise fee revenues through 2025 were estimated at $96.94 million. Discussions with
City staff indicated that none of these revenues currently or are planned to be used for roadway
capacity projects. Most non-FDOT roadway projects in Ocoee are funded through TIF revenues or
through private developer contributions. However, in the event that these sources do not fully
fund roadway capacity improvements, the City has estimated that as much as $19.39 million (20
percent) of total eligible revenue could be allocated to such projects. This is consistent with the
current TIF ordinance. This dollar amount forms the basis for calculating impact fee credits.
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RENAISSANCE PLANNING GROUP City of Ocoee Transportation Impact Fee Final Report
TABLE 3: AVERAGE COST PER LANE MILE OF NEW CAPACITY
Lane Capacity VMC Cost Per Lane
Jurisdiction Segment From To Total Cost Length Miles Added Added Mile
Added
Ocoee Maine Street Maguire End $8,929,525 1.24 2.48 19,400 24,056 $3,600,614.92
Ocoee Profesional Parkway Maguire Rd Blackwood Ave $3,146,852 0.75 1.5 19,400 14,550 $2,097,901.33
Ocoee Old Winter Garden Blackwood Hempel $2,206,825 0.42 0.84 20,400 8,568 $2,627,172.62
Orange Apopka-Vineland SR 50 AD Mims $8,221,573 2.91 5.82 15,100 43,941 $1,412,641.41
Orange Good Homes Rd Old Winter-Garden SR 50 $2,584,219 0.67 1.34 15,100 10,117 $1,928,521.64
TOTAL 11.98 89,400 101,232 $2,333,370.38
Sources
Ocoee: FY 2003-2007 CIP
Orange: FY 2003-2007 CIP
Note: Only Ocoee-area,capacity increasing projects used. Costs include DES, ROW,CST,and utilities relocation.
TABLE 4: COMPARISON OF AVERAGE COST PER LANE MILE OF NEW CAPACITY
Ocoee/OC CIPs $2,333,370
FDOT $2,302,541
Metroplan LRTP $2,255,906
Maguire (s. of SR 50) $2,095,988
RENAISSANCE PLANNING GROUP City of Ocoee Transportation Impact Fee Final Report
As noted previously, the impact fees developed through this study are expressed as a
function of VMT. Accordingly, TIF credits must also be determined on a cost per VMT basis.
Assuming that up to $19.39 million in non-TIF revenues could be spent on roadway capacity
projects between now and the year 2025, and that an additional 1,141,452 VMT will be consumed
on the City's roadways, new development is assessed a credit of $16.99 per VMT consumed. This
credit is applied to the impact fee calculation.
LAND USE CATEGORIES
The land use categories contained in the current fee schedule were reviewed to ensure they
accurately and comprehensively reflected the types of development occurring in Ocoee. Based on
this review, several changes were made. A few land uses were deleted or folded into other
categories, such as quick lubrication vehicle stop (folded into auto care center), wholesale tire store
(folded into retail tire store), and walk in bank (folded into drive in bank). The following land uses
were added:
• Movie theater;
• Self service car wash;
• Congregate care facility;
• Church;
• Hospital;
• Supermarket, and
• Business park.
Changes were also made upon comparison of several similar land use categories. For example, the
category of congregate care facility was added after comparing six similar retirement categories.
TRANSPORTATION MASTER PLAN LINKAGES
Although Ocoee's TIF ordinance is based on objective standards regarding the demand for
and cost of providing roadway capacity, rather than tied to a specific set of long-term roadway
improvements, there is still an important linkage between the TIF ordinance and the City's long
range transportation planning efforts. From a policy perspective, this linkage is most important in
considering the scope of the TIF rates in relation to the City's long-term roadway improvement
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RENAISSANCE PLANNING GROUP City of Ocoee Transportation Impact Fee Final Report
priorities as expressed in the City's Transportation Master Plan (TMP) and newly adopted 2020
Comprehensive Plan.
It is important to note that the TMP, which was used in preparing the current TIF
ordinance, is also the basis of the Comprehensive Plan's Transportation Element. Accordingly, the
City's official long-term transportation priorities have not substantially changed since adoption of
the current TIF ordinance in 1998. However, Metroplan Orlando has undertaken recent efforts to
update the regional traffic model and underlying socioeconomic data for its new Long Range
Transportation Plan (which is not yet complete).
The new regional traffic model was used to test the TMP's 2020 roadway improvement
priorities to determine if major changes were warranted in project priorities which could affect the
demand and cost component assumptions of the TIF. Although application of the new traffic model
has not yet received close scrutiny in the region, including Ocoee, review of traffic volume outputs
from the new model suggests that major revisions to the City's long-term transportation priorities
are unnecessary.
PROJECTIONS OF IMPACT FEE REVENUE
Using the 2025 socioeconomic data assumptions from Metroplan's new regional traffic
model, an analysis was undertaken to project how much revenue could be raised by the City's
updated transportation impact fee to pay for needed improvements over the next 20 years. It
should be noted that these growth assumptions are for the entire City-County Joint Planning Area
(JPA), rather than entirely within the City limits. However, using the growth projections does not
over-estimate potential revenues because most of the growth was assumed to occur inside the
City's portion of the JPA, and future annexations may occur to capture more of that growth within
Ocoee by 2025.
The amount of projected revenues that would be generated in five-year increments using
the recommended TIF rate schedule are shown in Table 5. It should be noted that projected
revenues are not discounted to the net present value; it is assumed that impact fee revenues will be
invested at a rate at least equal to the discount rate until they are spent. These revenue projections
are then compared with the estimated capital improvement costs for City-funded transportation
improvements in the Transportation Master Plan, which are expected to be approximately $163.5
million in new capacity improvements (from 2000 to 2025).
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RENAISSANCE PLANNING GROUP City of Ocoee Transportation Impact Fee Final Report
As shown, even with the proposed significant increase, impact fee revenues are projected to
total approximately $71.4 million through 2025, or only 44 percent of the cost of the
transportation improvements included in the Transportation Master Plan. This indicates that other
revenue sources will need to be used to fund roadway projects, such as a larger portion of the gas
tax, and particularly through developer contributions.
TABLE 5: PROJECTED TRAFFIC IMPACT FEE REVENUES — 2000 TO 2025
New Impact Unit of 2005 2015 2025
Development Fee Rate Measure Amount I Revenue Amount I Revenue Amount I Revenue
Impact Fee Revenue Forecast
Single Family
Residential $3,969 Dwelling Unit 1,643 $6,520,414 4,929 $19,561,242 8,215 $32,602,071
Multi Family
Residential $2,749 Dwelling Unit 429 $1,178,946 1,286 $3,536,839 2,144 $5,894,731
Industrial $1,824 1000 SF 452 $824,719 1,356 $2,474,158 2,260 $4,123,597
Service $10,392 1000 SF _ 259 $2,694,271 778 $8,082,814 1,296 $13,471,356
Commercial $7,018 1000 SF 438 $3,070,470 1,313 $9,211,410 2,188 $15,352,349
Total $14,288,821 $42,866,462 $71,444,104
Transportation Funding Sources(millions of current year dollars)
2000-2005 2005-2025 TOTAL
Facility Cost $64.4 $99.1 $163.5
Estimated Impact
Fee Revenue $14.3 $57.2 $71.4 43.7%
Balance -$50.2 -$41.9 -$92.1
Notes:
Population and Employment forecasts for 2005 and 2015 are interpolated based on the adopted 2000 and 2025 ZDATA
E+C Revenues are based on 2005 Forecasts of Population and Employment
E+C Costs are based on FY 07/08 planned improvements
DISCOUNT FACTOR
In adopting or revising a TIF ordinance, some jurisdictions have opted to include an across-
the-board reduction in the proposed fee schedule through use of a "discount factor." This is an
arbitrary percentage that is applied to the rate schedule to reduce the actual fees paid by new
development. It is important to note that this is a policy issue, not a technical issue. There is no
basis in the technical analysis to reduce the TIF any more than is justified through the credit
component of the TIF formula. While applying a discount factor may make a noticeable increase in
impact fees more politically feasible and perhaps reduce the incentive for a legal challenge, doing so
also ultimately shifts the burden of revenue collection for new roadway projects from new
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RENAISSANCE PLANNING GROUP City of Ocoee Transportation Impact Fee Final Report
development to existing residents and taxpayers. A summary review of other jurisdictions in the
metropolitan Orlando area indicated that most do not apply a discount factor, nor give other types
of discounts, such as to non-profit organizations.
Another approach is a phased implementation of a new rate increase. This approach was
used by Orange County in implementing its current TIF rate schedule. This is essentially the same
as applying a discount factor that decreases over time.
While the effect of applying various discount factors to the recommended new TIF rates
was analyzed, this approach is not recommended for the reasons stated above. In fact, doing so
may even be viewed as doubt in the technical assumptions underlying the TIF formula and rate
structure, perhaps increasing the incentive for a challenge or dispute.
COMPARISON WITH OTHER JURISDICTIONS
Ocoee's current and recommended TIF rate schedules were compared with other
jurisdictions in the metropolitan Orlando area to put changes to the TIF rates in context. Ocoee's
current TIF rates were first compared with eight other jurisdictions, both city and county, in the
greater Orlando metropolitan area (see Appendix). The highest fee for each common land use
category is highlighted as well as how Ocoee's TIF ranks among all of the jurisdictions. As shown,
Ocoee's current TIF rates for most categories are generally in the midpoint of all jurisdictions.
Two caveats should be noted about this comparison. First, each jurisdiction uses different
assumptions in calculating its impact fees, and some jurisdictions, such as Orlando, Winter Garden,
and Orange County, have TIF rates that vary by geographic area, limiting a category-by-category
comparison to a certain extent. Second, each jurisdiction adopts and updates its TIF rates on a
different schedule, also limiting a side-by-side comparison.
For informational purposes, the recommended new TIF rate schedule was then compared
with the existing TIF rate schedules for the other eight jurisdictions (also see Appendix). Because
this comparison reflects a higher rate schedule for Ocoee only, the recommended rate schedule
would place Ocoee first in most categories among the various jurisdictions, as expected.
Coincidentally, Orange County is also in the process of updating its TIF rate schedule.
Accordingly, the County's draft new TIF rates were compared with Ocoee's recommended new
rates (Table 6). As shown, the two TIF rate structures compare favorably. Although Orange
County's proposed TIF rates are still under review, if adopted as shown, fees for many land use
categories would be higher than the recommended rates for Ocoee.
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RENAISSANCE PLANNING GROUP City of Ocoee Transportation Impact Fee Final Report
It is also important to note that, in addition to Orange County and Ocoee, several other
jurisdictions have already or are in the process of adopting revised impact fees for traffic and other
public facilities, many of them substantial increases. The most visible of these efforts were recent
actions by Lake County and Osceola County to substantially increase their school and road impact
fees, respectively, in response to dramatic residential growth in both areas. Both sets of fees are
currently the highest in Florida. Other areas in various stages of adopting traffic impact fee
increases include Orange County, Lee County, and Polk County. With the recent failure of the
"Mobility 20/20" sales tax initiative, more pressure is placed on existing revenue sources to
shoulder the burden to increase roadway capacity to keep up with new growth.
CONCLUSION
This summary report documents updates to the various components comprising the City of
Ocoee's traffic impact fee, originally adopted in 1998. Based on current data, particularly
regarding the cost to construct roadway capacity, the recommended traffic impact fee rate schedule
is substantially higher than current fees. However, the increased fee is justified based on a detailed
roadway cost analysis, projections of new growth in Ocoee through 2025, and the resulting
demand and supply of the transportation network. The new rate schedule also includes revisions to
the land use categories, assessment of vehicle travel on roadways by jurisdictional responsibility,
and revenue projections. The new traffic impact fee rate schedule should more accurately reflect
the cost impacts of new development on roadway capacity and the cost to Ocoee to construct
roadway capacity projects. In this way, the City can continue to properly plan for and fund needed
long term transportation improvements to keep pace with new development.
12
City of Ocoee City Commission Impact
Review Workshop
FIVE YEAR
Hs usiN PEgmns
Russ Wagner
Community Development Director
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