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HomeMy WebLinkAboutVI (A) Second Reading and Public Hearing of Ordinance No. 2000-21, relating to Fire Impact Fees Agenda 7-18-2000 Item VI A "CENTER OF GOOD LIVING-PRIDE OF WEST ORANGE" MAYOR•COMMISSIONER S.SCOTT VANDERGRIFT Ocoee COMMISSIONERS ` CITY OF OCOEE DANNY HOWELL 0 SCOTT ANDERSON pr. - 150 N. LAKESHORE DRIVE RUSTY JOHNSON IvK.„.. �iWW.iii p OCOEE, FLORIDA656-23761-2258 NANTY J. PARKER et` //ra (407)656-2322 / Cm MANAGER D `� ELLIS SHAPIRO f G000 `..--, STAFF REPORT DATE: July 7, 2000 TO: The Honorable Mayor and City Commission FROM: Brad Friel,AICP,Capital Projects/Transportation Planner THROUGH: Russ Wagner,AICP, Planning Director 1% SUBJECT: Ordinance 2000-21; Ocoee Fire Impact Fee Update ISSUE: Should the Mayor and City Commission accept the attached Fire Impact Fee Update and approve Fire Impact Fee Ordinance 2000-21? BACKGROUND: In December 1989, the Mayor and City Commission adopted Ordinance No. 89-47. This was Ocoee's first Fire Impact Fee Ordinance. In July 1991, the original Ordinance was revised to include, among various changes, a district based fee schedule and to update the background data and equipment cost. For the period in which Ocoee has collected fire impact fees,(1990 to 1999), the City has collected $4,338,188. During this period, impact fees have been used to help offset the cost of new residential and commercial growth. The fees collected in districts three and four have been used to help finance the construction of two new fire stations as well as, help pay for various large capital items such as new fire trucks. Fees collected in districts one and two have also been used to purchase capital items and equipment. Currently, the City has $1,638,383 in the fire impact fee account. These funds are drawn on regularly to pay for capital items and to help service capital improvement bonds. In the future, the City will continue to draw on these funds for debt service and for the purchase capital items that will benefit the residents of Ocoee. It has been the intent of the City Commission to periodically revise the Fire Impact Fee Ordinance and fee schedule to reflect changes in growth patterns in the City of Ocoee and changes in cost of providing new facilities and equipment. ''i( POVIffil Erct ct Ocoee's Water Fesources 't. The Honorable Mayor and City Commissioners July 7,2000 Page 2 DISCUSSION: Over the last several years, the City has experienced substantial increases in request for fire protection services. For the period between 1995 through 1998 the Fire Department's calls for service within Ocoee have increased by more than 31 percent. To date, the Ocoee Fire Department has been able to met the City's needs within the current frame work of the existing Fire Impact Fee Ordinance. However, facilities and equipment are now being utilized at capacity levels, and the City anticipates that additional significant capital expenditures will be necessary in the future to maintain historical service standards. In response to the City's growth and demand for fire protection services, the Fire Department recently prepared a Community Fire Protection Strategic Plan and a Needs Assessment/Master Plan for the City's Main Fire Station. Based on these studies it became apparent that the City should reevaluate its current Fire Impact Fee Ordinance. This evaluation was conducted within the framework of the Ocoee Fire Impact fee Update, which is attached. This document details the City's existing fire protection needs as well as what facility and capital equipment improvements are necessary for the Fire Department to maintain its existing fire protection service level through the year 2020. Also detailed in the Community Fire Protection Strategic Plan and the Ocoee Impact Fee Update, is the need to move away from fire impact fee districts to a City wide impact fee. This shift results not only from the overall growth of the City, but also from the maturation of the Fire Department. The Community Fire Protection Strategic Plan shows that the City must add specific facilities and equipment that will benefit the entire City. As an example,the proposed Main Fire Station will house most of the City's fire administrative functions as well as equipment that will be available for use throughout the City. The proposed fire Station#2 will house the City's training facilities and equipment for use throughout the City. The restructuring of impact fees will have a continued positive effect on the Insurance Services Office (ISO)rating of the City of Ocoee.The capital projects identified in the Impact Fee Study, namely the relocation of Fire Station One and the addition of Fire Station Two with a training facility,will provide additional credits to lower the classification. Improvements to the ISO classification funded by impact fees will benefit all residential and commercial properties within the City. Based on the overall community need and benefit,the attached Fire Impact Fee Update recommends and uses a community benefit approach. Using the revised data and new methodology, a new fire impact fee was developed for residential and non-residential land uses. A comparison of the new fees is made below: Residential: proposed $0.182 sq.ft. Existing District 1 $0.053 sq.ft. Existing District 2 $0.092 sq.ft. Existing District 3 $0.225 sq.ft. Existing District 4 $0.328 sq.ft. Average $0.175 sq. ft. As shown above, the relative difference between the existing fees and the proposed fee schedule is minimal. It is important to note that districts one and two are much lower that any of the other existing or proposed residential impact fees. These fees are lower because the previous Fire Impact Fee Ordinance did not assume any significant residential growth in these areas. As shown on the attached Fire Impact Fee District Map, district one includes much of the downtown and other established areas of Prnlect scnee's Water Resources 6'2 The Honorable Mayor and City Commissioners July 7,2000 Page 3 Ocoee and is not anticipated to have significant residential growth. As a result, there should be little impact to any new development in this district. District two, on the other hand, includes the northwestern area of Ocoee and is expected to be the next high growth area. Under the existing fee structure of$0.053 sq. ft., the City may not collect sufficient impact fees to accommodate new growth. This may result in the City's inability to acquire the needed additional capital equipment which may lead to a City wide decrease in fire protection services. Wth respect to districts three and four, the impact fees collected to date have been used to build two new fire stations and purchase equipment necessary to maintain existing fire protection services. Future needs in these areas will be the same as the rest of the City's and therefore, fire impact fees in these areas should be consistent with the other areas of the City. Non-Residential: proposed$0.284 sq.ft. Existing District 1 $0.315 sq.ft. Existing District 2 $0.097 sq.ft. Existing District 3 $0.390 sq.ft. Existing District 4 $0.333 sq.ft. Average $0.284 sq.ft. As shown above, there is no net change between the proposed non-residential fire impact fee and the existing average fire impact fee. Similar to the discussion of residential impact fees above, the existing impact fee for district two is much lower than the other districts. Again, this difference is the result of minimal commercial development projected for this area in the existing Fire Impact Fee Ordinance. Based on the new impact fee update,the projected fire protection needs of this area are the same as the rest of the City. Therefore, without revising the fire impact fees the City may experience a shortfall in impact fee collections which may result in a decrease in City wide fire protection services. Comparisons were also made between Ocoee's existing and recommended fire impact fees and those from Orange County, Seminole County, Osceola County and several cities in Central Florida. This comparison is shown in Tables 1 and 12 of the attached Fire Impact Fee Update. As noted in Table 1, Ocoee's fire impact fee has historically averaged slightly higher than the surrounding jurisdictions. It is important to note that many of the jurisdictions listed are substantially built-out or rely on a strong tax base to support their fire protection needs. (such as downtown Orlando or the Maitland Center area) As seen in Table 12,the proposed impact fees do not change Ocoee's relationship to the surrounding areas. The recommended fire impact fee is expected to generate almost$7.7 million in revenue over a 20 year period. This represents 48.5 percent of the total cost ( including finance charges ) to implement the Community Fire Protection Strategic Plan. The remaining balance will be covered through taxation or other revenue sources. The existing fee collection procedures and the administration of the impact fee revenues are unchanged from the current process. RECOMMENDATION: Staff respectfully recommends that the Mayor and City Commission accept the attached Fire Impact Fee Update and approve Fire Impact Fee Ordinance 2000-21. Attachments: Ordinance 2000-21 Existing Fire Impact Fee Districts Fire Impact Fee Update Dated July 2000 P COW Protect knee's Water Resources "; ORDINANCE NO. 2000-21 AN ORDINANCE OF THE CITY OF OCOEE, FLORIDA RELATING TO FIRE IMPACT FEES; AMENDING SECTION 87-30 OF ARTICLE III OF CHAPTER 87 OF THE CODE OF ORDINANCES OF THE CITY OF OCOEE WITH RESPECT TO DISTRICTS ESTABLISHED AND FEE SCHEDULE; ABOLISIING THE DISTRICTS ESTABLISHED ANT) REVISING THE FIRE IMPACT FEE SCHEDULE FOR THE PURPOSE OF DETERMINING APPLICABLE FIRE IMPACT FEES; PROVIDING FOR THE TRANSITION OF THE PREVIOUSLY COLLECTED DISTRICT TO DISTRICT FEES; PROVIDING FOR SEVERABILITY; PROVIDING FOR CODIFICATION; PROVIDING AN EFFECTIVE DATE. WHEREAS, the City of Ocoee is divided into four (4) districts for fire impact fee purposes with a different fire impact fee being charged for structures located in each of the four (4) districts; and WHEREAS, the City Commission of the City of Ocoee desires to abolish the different districts as they pertain to fire impact fees and make the fire impact fees uniform throughout the City; and WHEREAS, the City has conducted a fire impact fee calculation study dated June 2000 and according to this study has made a determination as to the necessary uniform fire impact fees for both residential and nonresidential construction. NOW, THEREFORE, BE IT ENACTED BY THE CITY COMMISSION OF THE CITY OF OCOEE, FLORIDA, AS FOLLOWS: 006.182961.3 SECTION 1. Authority. The City Commission of Ocoee has the authority to adopt this Ordinance pursuant to Article VIII of the Constitution of the State of Florida and Chapter 166, Florida Statutes. SECTION 2. Amendment to Section 87-30. Section 87-30 of Article III of Chapter 87 of the Code of Ordinances of the City of Ocoee, Florida, is hereby amended to read as follows (with deletions stricken and additions underlined): § 87-30. Districts established; fee Fee schedule. ee , ..ors. • A. The following fire impact fees are hereby assessed by the city and shall be collected by the city prior to issuance of a building permit or any other development permit for the construction of any structure to be used for a residential or nonresidential dwelling in each district: (1) District 1: fa) (1) Residential: five and three tenths cent., ($0.053) eighteen and two tenths cents ($0.182) per square foot. (b) (2) Nonresidential: thirty one and five tenths cents ($0.315) twenty-eight and four tenths cents ($0.284) per square foot. (2) District 2: (a) Re • ..,, ..cI ($0.092) per square foot. (b) Nonresidential: nine and seven tenths cents ($0.097) per square foot. (3) District 3: (a) Residential: twenty two and five tenths c 22c) p are foot_ (b) Nonresidential: thirty nine and zero tenths cents ($0.390) per square foot. 006.182961.3 2- (1) District 1: (a) Residential: thirty two and eight tenth., e. ,gu,�e-feeF (b) Nonresidential: thirty three and three tenth„ E B. The fees imposed for residential and nonresidential construction are a result of the City's fee calculation study which was designed to ensure that the impact fees imposed are rationally related to the benefit received by the applicant. Dr C. In the event that an applicant believes the impact of the construction will be less than that set forth above, the applicant may, at his option, submit evidence to the City Commission in support of an alternative assessment. Based upon convincing and competent evidence, the City Commission may adjust the impact fee as appropriate for the particular property. SECTION 3. Previously Collected Fees. All funds currently held by the City based on the separate district fee schedule shall be reallocated to the city wide fire impact fee based upon the reevaluation of fire service needs contained within the updated fire impact fee calculation study. SECTION 4. Severability. If any section, subsection, sentence, clause, phrase or portion of this Ordinance is for any reason held invalid or unconstitutional by any court of competent jurisdiction, such portion shall be deemed a separate, distinct and independent provision and such holding shall not affect the validity of the remaining portion hereto. SECTION 5. Codification. It is the intention of the City Commission of the City that the provisions of this Ordinance shall become and be made a part of the Code of Ordinances of the City; and that sections of this Ordinance may be renumbered or relettered and the word "ordinance" may be changed to "chapter," "section," "article," or such other appropriate word or phrase in order to accomplish such intentions; and regardless of whether such 3- 006.182961.3 inclusion in the Code is accomplished, sections of this Ordinance may be renumbered or relettered and the correction of typographical errors which do not affect the intent may be authorized by the City Manager, without need of public hearing, by filing a corrected or recodified copy of same with the City Clerk. SECTION 6. Effective Date. This Ordinance shall become effective on August 1, 2000. PASSED AND ADOPTED this day of , 2000. ATTEST: APPROVED: CITY OF OCOEE, FLORIDA Jean Grafton, City Clerk (SEAL) S. Scott Vandergrift, Mayor FOR USE AND RELIANCE ONLY BY THE CITY OF OCOEE, FLORIDA; ADVERTISED , 2000 APPROVED AS TO FORM AND REM) FIRST TIME , 2000 LEGALITY this day of , 2000. READ SECOND TIME AND ADOPTED , 2000 FOLEY & LARDNER UNDER AGENDA ITEM NO. By: City Attorney 4- 006.162961.3 IMPACT FEES • FIRE CONTROL BENEFIT DISTRICTS ---- �— City of Ocoee I 1991 UPDATE _-- 274 ' I_ et Orange County, Markle 1 .0 0 221 TTIArTIc zones �- noon iG I000EE • —,,.I 222 ctpj co n { I a ` d 1I V 7 r • \ S II�gnT10NTOi1ST�' . ' STATION SOUS / 1 1 O i ' �1 //� �j y �i c �� _ % /� r I I fl SILVEn STAn nOAO �� m LL�� lll"' ... t I / •I �UI # --� . _ } II{I��� 7y y j , / 26I �yi 0 r' Iu5\{ I STATION ON_Elk • 4 inn { I tt 11 ' 2'; Ie a 251 1�1s{ ,yB' ' J --- r `I;—.— a �'S i''�. ix — 1 '`c IyYAI t.,,. I III , . [ :iI .1II� 1r' r{. m I IIS� kit 3 262 .._ylu .. yn..� i 266 • 1 tonr.011.1. 0 III •• riAf11;09r, n x 254 = , •, t =-1 r�i e' d�-.IP(r a ell oR. : Uv C *nevi 56 ' , • . •ete• stir.? . i . . , , 257 :"11'4 i STATION T11 II L !! • �> : 6 _------aT-------------- s Copy of Public Hearing Advertisement Date Published Saturday, July 8, 2000a Advertisement CITY OF OCOEE NOTICE OF PUBLIC HEARING TO CONSIDER AN ORDINANCE OF THE CITY OF OCOEE,FLORIDA; RELATING TO FIRE IMPACT FEES NOTICE IS HEREBY GIVEN of Artcle uuant l II of IRe Sectiono code of 53-13 the City of Ocoee.that on July IS. 2000 at]:15 pm. or 'hereafter as OCOEE CITY COMMISSION veile holdregular a PUBLIC HEARING Commis- sionI'Chambers thecoee City Hal;.150 North Lakeshore Drive. during the hearingaB��and oral no ordinanc Florida,ttelCCitypof Ocoee, unbar names be regarding ne,e Florida': relating lc fire impart mortars will e fees tInterested e meetingeg and be head appear ORDINANCE NO 2000-2I respect to this matter.My per- o desires m appeal any AN ORDINANCE OF THE •dea on made during 1the Fuhec CITY OF OCOEE.FLORIDA RELATING TO FIRE IM- that hearing verbatimerecord ensuref PACT FEES: AMENDING proceeding is made which in- SECTION 07-30,OF ARV- Iudes the testimony and p eve THE CODE OF ORDI ANC- bared.°Peso"bit the isabrll4es ES OF THE CITY OF needing as m to paci. OCOEE WITH RESPECT pate in any of the proceedings TO DISTRICTS !STAB, should contact the City Clerks LISHED AND THE FEE Rce tie hours in advance OI SCHEDULE; ABOLISHING the meeting at{407)905.3100 THE DISTRICTS ESTAB' LISHED AND REVISING JEAN GRAFTON. THE FIRE IMPACT FEE CITY CLERK, SCHEDULE FOR THE PUR- CITY OF OCOEE POSE OF DETERMINING C013401115 JULY g 2000 APPLICABLE FIRE IMPACT FEES; FOR SEVERABIILLIITY: PROVID- ING FOR CODIFICATION PROVIDING AN EFFECTIVE DATE The Fire impact Fee includ- ing Study, dy,mPay innsppeecctted at the tmenl. 150 NMh Lakeshore Dr;iva be- tween the hours of BW a Friday,except legal holidays through The Gty commission may con- a eshand times'asitittdeefls shaawry Interested parties ll be advised that the dates. amethisne any hr til n or�m b tic hewfgs Wall be announced CITY OF OCOEE Fire a 4 OCOEE Impact Fee Update Prepared By the City of Ocoee - July 2000 CITY OF OCOEE FIRE IMPACT FEE STUDY Table of Contents SECTION ONE: INTRODUCTION 1 1.1 BACKGROUND 1 1.2 NEED FOR IMPACT FEES 1 1.3 EXISTING FIRE IMPACT FEES 1 1.4 AUTHORIZATION 2 SECTION TWO: BASIS FOR IMPACT FEES 3 2.1 LEGAL CRITERIA 3 2.2 REGIONAL AND STATEWIDE USE OF IMPACT FEES 5 SECTION THREE: IMPACT FEE METHODOLOGY 7 3.1 BACKGROUND 7 3.2 POPULATION PROJECTION 7 3.3 SERVICE STANDARDS 6 3.4 METHODOLOGY APPROACHES B 3.5 NEEDS ASSESSMENT 9 3.6 DISTRIBUTION OF COSTS 9 3.7 OPERATIONAL CONSIDERATIONS 10 3.8 PERSONNEL CONSIDERATIONS 11 3.9 FINANCIAL CONSIDERATIONS 11 SECTION FOUR: POPULATION AND LAND USE 13 4.1 BACKGROUND 13 4.2 HISTORICAL COMMUNITY GROWTH 13 4.3 GROWTH PATTERNS 14 4.4 GENERAL POPULATION AND EMPLOYMENT PROJECTIONS 16 4.5 POPULATION AND DWELLING UNIT PROJECTIONS 18 4.7 PROJECTED NON-RESIDENTIAL GROWTH 20 SECTION FIVE: FIRE/EMS SERVICES 24 5.1 OPERATIONAL BACKGROUND 24 5.2 SERVICE ACTIVITY 25 5.3 PERSONNEL LEVELS 26 5.4 SERVICE STANDARDS 27 5.5 FACILITIES AND EQUIPMENT INVENTORY 27 5.6 FUTURE FIRE NEEDS 29 6.7 FIRE IMPACT FEE DETERMINATION 31 SECTION SIX: CONCLUSIONS 34 City of Ocoee-Fire Impact Fee Study City of Ocoee List of Tables Table 1 Existing Police and Fire Impact Fee Comparison 6 Table 2 1997 Existing Population and Employment In JPA 16 Table 3 Year 2020 Population Projections In JPA 18 Table 4 Year 2020 Dwelling Unit Projections in JPA ........................_._._._.._.._......._._..._................. ... 20 Table 5 Year 2020 Projected Non-Residential Square Footage In JPA 23 Table 6 Calls for Service Summary Ocoee Fire Department 25 Table 7 Annual Calls For Service ( 1994 - 1998 ) By Location . ................................................... 26 Table 8 Personnel Utilization Ocoee Fire Department _._.. ._._._._. ................ ..............__ 26 Table 9 Inventory of Capital Items Ocoee Fire Department ..........................._................... 28 Table 10 Fire Station One Relocation 30 Table 11 Fire Station Two facilities 31 Table 12 Proposed Police and Fire Impact Fee Comparison 35 List of Figures Figure1 Existing Land Use Map ......................................................._.......... 15 Figure 2 Future LU Map 17 Figure 3 Population Projections Map . . . . 19 Figure 4 Employment Growth 21 City of Ocoee-Fire Impact Fee Study Page 37 CITY OF OCOEE FIRE IMPACT FEE STUDY SECTION ONE: INTRODUCTION 1.1 Background The City of Ocoee is located in heart of western Orange County near Lake oo Apopka and the communities of Winter Garden, Apopka Windermere, and 4 " `""' , PP Pe .5'-CV Gotha. In 1990 the U.S. Census Bureau estimated the population of Ocoee at 12,778 residents, living within approximately 12.5 square miles. Since 1990, the City has added over 9,900 residents, over one million square feet of commercial space and has annexed almost 3,000 acres. Large tracts of developable land, a great quality of life and convenient '^' location to employment centers and other attractions will continue to make Ocoee an attractive area for residential and employment growth. 1.2 Need for Impact Fees During the last several years, many local governments have been faced with the problem of funding significant infrastructure improvements necessitated by rapid growth. In order for communities to maintain historical levels of service, sizable capital expenditures must be made to support operations. In many cases, the combined need to construct facilities, purchase equipment, and add manpower to operational budgets has outstripped the financial abilities of even the largest units of government. Increasingly, local governments in Florida have utilized impact fees to help defray a portion of the capital facilities and equipment needs caused by rapid growth. An impact fee is a one-time charge imposed on new development as a contribution toward the proportionate cost of new public facilities and/or equipment necessary to maintain adequate level of service standards. Thus, the purpose of the impact fee is to assign, to a practical extent, growth-related capital costs to those users creating the need for such costs, so as not to impose an unreasonable financial burden upon existing residents. Currently, the City imposes roadway, police, fire, recreation, water, and wastewater impact fees to assist in maintaining adequate public facilities within Ocoee. 1.3 Existing Fire Impact Fees In December 1989, the Mayor and Board of City Commissioners adopted Ordinance No. 89-47. This was Ocoee's first Fire Impact Fee Ordinance. In July 1991, the original Ordinance was revised to include, among various changes, a district based fee schedule and to update the background data and equipment cost. Over the last several years, the City has experienced substantial increases in service requirements on the Fire Department. The requests for assistance received by the Fire Department has increased at an overall rate which is higher than the population growth rate. Up until now, the City of Ocoee has been able to met the City's needs within the current frame work of the existing Fire Impact Fee Ordinance. However, facilities and equipment are now being utilized at capacity levels, and the City anticipates that additional significant capital expenditures will be necessary in the future to maintain historical service standards. City of Ocoee-Fire Impact Fee Study City of Ocoee During the period from 1990 to 1999 , the City has collected $4,338,188 in fire impact fees in four districts. During this period impact fees have been used to help offset the cost of new residential and commercial growth. The fees collected in district three and four have been used to help finance the construction of two new fire stations as well as, help pay for various large capital items such as new fire trucks. Fees collected in districts one and two have also been used to purchase capital items. Currently, the City has $1,638,383 in the fire impact fee account. These funds are drawn on regularly to pay for capital items and to help service capital improvement bonds. In the future, the City will draw on these funds for the purchase capital items that will benefit the residents of the respective districts. 1.4 Authorization It is the intent of the Mayor and the City Commissioners to periodically revise the Fire Impact Fee Ordinance to adjust the fee schedule to reflect changes in growth patterns in the City of Ocoee and equipment and facilities necessary to provide fire protection for new development. This study is intended to provide the necessary data and support that will be used to update the Fire Impact Fee Ordinance. Specifically, this study will be organized and presented under the following headings: • Basis For Impact Fees • Impact Fee Methodology • Population and Land Use • Fire/EMS Services • Conclusions City of Ocoee-Fire Impact Fee Study Page 2 City of Ocoee SECTION TWO: BASIS FOR IMPACT FEES 2.1 Legal Criteria Even though it is beyond the scope of this study to analyze the detailed legal aspects of impact fees, a brief summary of the more important legal criteria which guide their use is provided as background AL information. In Florida, three landmark court cases serve as the primary basis for setting impact fees and administering the way in which moneys are utilized. These legal citations are as follows: • Contractors and Builders Association of Pinellas County v. City of Dunedin 329 So. 2d 314 (Fla. 1976); • Hollywood. Inc. v. Broward County 431 So. 2d 606 (Fla. 4th DCA), cert. denied, 440 So. 2d 352 (Fla. 1983); and • Home Builders and Contractors' Association of Palm Beach County v. Board of County Commissioners of Palm Beach County, 446 So. 2d 140 (Fla. App. 4th DCA 1983). Since there are no Florida statutes which specifically govern impact fees, these cases are used as precedents to enable local governments to levy fees for specific capital needs caused by growth. Such fees are limited to those services where a direct relationship can be shown between the amount charged and proportionate public facilities received. In addition to Florida case law, there are numerous landmark cases that have been heard in other states which also help guide impact fee administration. A summary of significant legal criteria which will be utilized to develop Ocoee's Fire Impact Fees is as follows: "Rational Nexus" Test There must be a reasonable relationship or connection between community growth that is generated by new development and the need for additional facilities to accommodate that growth. Also, the expenditure of any funds collected from new development must bear a reasonable relationship to the resulting benefits which accrue to that development. Windfalls The system of fees should be set up to ensure that there is no intentional windfall of revenue to benefit existing residents or users. New users should pay only their proportionate share of any new facilities which benefit the entire community. City of Ocoee-Fire Impact Fee Study Page 3 City of Ocoee Improvements to Service Levels Should the local government wish to improve its historical service levels, all increased costs beyond the proportionate share of the improvement attributable to new growth must be borne by existing users. This would also apply to increases in operational costs. In other words, new users can not be required to pay to correct existing service capacity deficiencies unless all users pay an equitable proportion of the cost. Excess Capacity Impact fee funds collected for new facilities and equipment must be established to only cover the costs of increased capacity necessary to reasonable satisfy the incremental service needs caused by growth. If excess service capacity is planned which will benefit other existing or future users, another revenue source or payment method must be established to support the extra costs. Operational Costs Impact fees may only be utilized for capital facilities and equipment costs. Continuing operational and maintenance costs must be derived from other sources, usually general revenue. Trust Funds Revenue generated by impact fees must be set aside in specific trust funds to ensure that moneys collected are properly accounted for and utilized for the lawful purposes in which they were intended. Uniqueness Principal Impact fee rates must be established based upon the unique physical and economic attributes of individual communities. Each local government must analyze its own development and projected growth-related needs within the context of historical service levels leading to impact fees specifically tailored to fit those requirements. Credits In order to ensure that new development does not pay twice for community facilities, consideration should be given to how new development has possibly contributed to the payment of existing facilities and how it will potentially contribute to the payment of future capital improvements. Off-Settinq Contributions In some instances, particularly in the case of large-scale projects, a developer may provide certain on or off-site capital improvements which either eliminate the impact generated by the development or which limit the extent of impacts otherwise created. To account for these situations, impact fee ordinances are generally structured to permit individual review of such cases to ensure that impact fees are reduced or eliminated in recognition of off-setting contributions. City of Ocoee-Fire Impact Fee Study Page 4 City of Ocoee Extraordinary Costs Amounts for capital facilities or acquisitions which are proportionately greater than normal due to unique circumstances may be passed on to selected users as extraordinary costs. Where specific facilities or equipment is required to maintain service standards for a particular user, group of users, or area, impact fees may be adjusted to reflect that need. In many communities, specific "benefit zones" are established to more equitably apportion capital costs based upon similar needs. Sufficiency of Benefit Impact fees must be expended in a manner which reasonably benefits the contributors. Depending upon the type of fee and the capital facilities provided, some rational relationship should be established between the contribution made and the benefit received. Typically, distance is used as the main determinant of benefit with the assumption that the farther an Improvement is from the user, the less substantial the relationship. In some cases, impact fee improvements must be constructed in close proximity to a development to ensure sufficiency of benefit. For other types of impact fees, it is sufficient to demonstrate community-wide benefit which also favorably impacts the contributing development. As with extraordinary costs, "benefit zones" may be established for certain types of improvements to ensure that funds are expended in close proximity to the contributors. Timing of Expenditures It is important to establish a capital improvements program which provides for expenditure of funds within a reasonable time frame of when the moneys are collected. The greater the time period between collection and actual expenditure of funds, the less likely that reasonable relationship may be demonstrated. Even though there are no specific guidelines on this issue, many communities are limiting the expenditure of funds to a six-year period from time of collection to correspond to their general Capital Improvements Program. Any funds which have remained in the trust fund for a period of over six years are typically refunded with interest to the fee payer or successor in title. Fairness Doctrine The basic requirement of a legally defensible impact fee ordinance is its "fairness". Communities which have gone to all reasonable lengths to ensure that impact fees have been imposed in a pragmatic, equitable manner have the least likelihood of being challenged in court. It is important to consider "fairness" aspects not only within the methodology utilized to establish the impact fee, but also within the actual ordinance itself which prescribes the manner in which fees will be administered. 2.2 Regional and Statewide Use of Impact Fees In addition to legal criteria, it is important to recognize the regional and statewide use of Fire/EMS impact fees. By understanding the extent of impact fee usage and the individual associated costs, a more reasonable basis may be established to help guide the development of fees in Ocoee Even though impact fee usage is based upon the unique characteristics of each community, it may be assumed that fees levied for the same purposes at rates similar to those imposed in comparably sized areas would be less likely to be challenged. City of Ocoee-Fire Impact Fee Study Page 5 City of Ocoee Recently, City staff completed a survey of local governments in the Orange, Seminole, and Osceola County region to determine what fire impact fees are imposed by other communities. Table 1 provides a detailed comparison of the specific fees charged in each of these communities. Based upon the information presented, it is apparent that there is a sizable range of fees imposed depending upon the specific circumstances of each community. As shown in Table 1, communities which are built out tend to have very low or no fire impact fees, while communities that are experiencing high growth rates tend to have higher fire impact fees. Table 1 Existing Fire Impact Fee Comparison By Community County/ City Residential Non-residential Orange County $148.69 du $0.02238 to $0.22987 sq. ft. Apopka $0.00 du $0.00 du I $0.00 du Belle Isle $0.00 du $0.00 du/ $0.00 du Edgewood $148.69 du $0.02238 to $0.22987 sq. ft. Maitland $0.00 du $0.15 sq. ft Oakland $100.00 Flat Fee $100.00 Flat Fee Ocoee $0.053 to $0.328 sq. ft $0.097 to $0.39 sq. ft Orlando $0.00 du $0.00 sq. ft. Winter Garden $165.00 du $0.097 sq. ft. Winter Park $0.00 du $0.00 sq. ft. Osceola County $0.00 du $0.00 sq. ft. Kissimmee $0.00 du $0.00 sq. ft. St. Cloud $0.00 du $0.00 sq. ft. Seminole County $172.00 du $0.01 to $0.684 sq. ft. Altamonte Springs $0.00 du $0.00 sq. ft. Casselberry $0.00 du $0.00 sq. ft. Lake Mary $175.00 du $0.129 sq. ft. Longwood $0.00 du $0.00 sq. ft. Oviedo $205.00 du $0.25 sq. ft. Sanford $59.27 du $0.025 to $0.0345 sq. ft. Wnter Springs $103.63 du $0.28 sq. ft. City of Ocoee-Fire Impact Fee Study Page 6 City of Ocoee SECTION THREE: IMPACT FEE METHODOLOGY 3.1 Background There are numerous methods by which to determine the proportionate or fair share of impact fee rates which are to be imposed on new development within a community. ^j-"'`„ `• Generally, the complexity of the background analysis and rate formulation is related to the size of the community. As > could be expected, the needs analysis of a large county is ' much more involved than that of a small city. Nonetheless, the same basic legal tenants must be considered, although - a' to a more limited degree as community size diminishes. The following points identify the major assumptions and X.. approaches which will be utilized in the development of the Fire Impact Fee for the City of Ocoee. Most of these - methodology considerations are applicable to any type of impact fee determination, however, many assumptions are tailored to fit the unique circumstances of Ocoee. It is the intent to develop methodologies which are basic, straight forward, and easy to administer. 3.2 Population Projection Regardless of the approach taken to formulate impact fee rates, a basic starting point is the determination of an optimum horizon year population projection to which growth may be projected. Typically, a ten to twenty year time frame is utilized to ensure that capital improvement needs and costs are apportioned over a suitable growth segment. The year 2020 is the planing horizon used in this study. This horizon year is consistent with comprehensive planning periods and other impact fee studies. It is presumed, however, that a portion of the moneys collected will begin to be expended within no more than 5-6 years to ensure that there is a reasonable benefit demonstrated to those who were the initial contributors to the fund. Population projection techniques vary from rather simple arithmetic extrapolations of historical growth rates to extremely complex formula which project increases based upon numerous growth indicators. It is desirable, if possible, to use projections contained within Ocoee's Comprehensive Plan and other impact fee studies to ensure consistency and credibility. For the purposes of this study, it is presumed that the residential and non-residential growth projections generated for the Ocoee Transportation Master Plan, Road Impact Fee Update and Recreation Master Plan are the best available forecast of growth for Ocoee. The growth projections developed in those studies were a result of a comprehensive inventory of developed and undeveloped land within the Ocoee Joint Planning Area. These projections were found to be consistent with Ocoee's Comprehensive Plan and have been used by other regional agencies for long range planning studies. The Ocoee Joint Planning Area is used for this study in order to remain consistent with the City's City of Ocoee-Fire Impact Fee Study Page 7 City of Ocoee other planning efforts and with the Ocoee / Orange County Interlocal Agreement for fire protection. Ocoee's Comprehensive Plan and Joint Planning Agreement with Orange County gives the City the authority to plan for City services within a specified boundary. Population and employment projections based on the Ocoee JPA are detailed in Section 4 of this study. 3.3 Service Standards The standard by which a community measures its effectiveness in maintaining a certain degree of performance is called Level of Service (LOS). Varying types of LOS standards are utilized according to the type of capital improvements planned. The State of Florida requires communities to adopt specific LOS standards for such things as roadways, drainage, wastewater, water, and recreation facilities, among others, as part of their Comprehensive Plan. Typically, the same LOS standard would be used as the basis for measurement for any related impact fee rate study. In the case fire services, no requirements are mandated by the State. Thus, the current LOS standards used by a community for these services are generally used as the basis of measurement. The LOS for a particular type of function can be raised if a community believes its standards fall below an acceptable norm; however, the elimination of any deficiencies proportionate to existing development within the community would need to be paid from sources other than impact fees. For the purposes of this study, it is presumed that Ocoee will maintain historic fire service standard levels. 3.4 Methodology Approaches Even though there are numerous methods utilized for the calculation of impact fees, most fall primarily into one of the two general categories, Standards-Driven or Improvements-Driven. As with any methodology, both approaches have advantages and disadvantages. In many cases, impact fee methodology actually utilizes both methods to determine charges, but relies on one approach more than the other depending upon the type of impact fee and the base data available. A Standards-Driven approach is used when it is more difficult to project specific capital needs to maintain service standards over time. Impact fee determination is based instead on the theoretical proportionate share of the cost for capital improvements necessary to accommodate incremental growth. Rates may be based on the historical capital investment made to support current service levels, projections of need based upon theoretical increments of future capital costs, or a combination of the two. This approach provides a significant amount of administrative flexibility, although it is important to ensure that the types of capital facilities and equipment acquired correspond to appropriate improvements to Levels of Service provided. An Improvements-Driven approach is used when it is relatively easy to project specific capital improvements which will be necessary over time to maintain the service standards of the community. It is also valuable in cases where projected capital costs to accommodate new growth are City of Ocoee-Fire Impact Fee Study Page 8 City of Ocoee disproportionately higher than historical capital investment rates. This approach is relatively easy to administer and provides a direct relationship between community needs and the fees charged to acquire appropriate facilities or equipment. The impact fees calculated in this study will be based on the improvements driven approach. A detailed discussion of the City's fire capital needs is discussed in Section Five of this document 3.5 Needs Assessment Regardless of the method by which fees are determined, it is necessary to initially inventory existing facilities and equipment to determine community investment relative to current development. This inventory also serves as the base point from which to assess future needs. The inventory of fire capital items typically includes all buildings and land utilized for these activities, all general administrative and operational equipment, vehicles, and all job-related personal equipment necessary to outfit an individual firefighter. This inventory would not include supply items which require periodic replacement or minor equipment items with a useful life of less than three years. All capital items are estimated at their current replacement values. Based upon an analysis of existing facilities and equipment and how these capital items are utilized in relation to various service standards, it is possible to project with some accuracy the future capital needs of the community caused by anticipated growth. Fire Department needs are primarily based upon response time standards set down by the Insurance Services Organization (ISO) and relate more to the physical size and building composition of the community and less to absolute population increases. Accordingly, future capital costs are largely dictated by specific facility and equipment needs which may be less directly related to community growth rates. A complete inventory of capital facilities and equipment as well as, future capital needs is detailed in Section 5 of this Study. 3.6 Distribution of Costs In order to more equitably distribute the costs of growth relative to the impacts generated, some apportionment between different types of users is generally desirable. Depending upon the type of impact fee and the size of the community, this apportionment may range from individual fees for a wide variety of land uses to a simpler split between residential and non-residential uses. Typically, residential apportionment's are based upon the number of dwelling units within that category, and non-residential apportionment's are based upon the square footage of the structures situated within this category. These ratios are, in turn, related to projected community growth to the horizon year of the study period. The most prevalent way to equitably allocate growth costs for fire services is based upon historical Calls for Service (CFS) directed proportionately to the range of residential or non-residential users. CFS are simply the requests for assistance received by the Fire Department. These calls can range from very serious emergency needs to routine false alarms. Even though CFS provides the base empirical data utilized to apportion costs among different types City of Ocoee-Fire Impact Fee Study Page 9 City of Ocoee of users, it is important to recognize that the Fire Department is heavily involved in prevention activities including community education programs and building inspection services. This is particularly true for commercial and industrial areas where users require a high degree of security to protect property and livelihoods. Accordingly, the proportionate service provided to the range of different types of uses within each category is not wholly related to CFS. To some degree, it may be presumed that there is an inverse relationship between CFS and the efficiency of service provided. Unfortunately, empirical data to demonstrate the preventative aspects of fire services is lacking other than records indicating the general amount of time devoted to patrol and inspection activities. Regardless, it will be assumed that any slight variations in CFS patterns between similar types of users within each category will be equitably balanced due to the preventative services provided by the Fire Department. For the purposes of this study, all individual single family, multifamily, and mobile home dwelling units will be equally placed in the residential category, and all commercial, office and industrial uses will be placed in the non-residential category using gross size as the proportionate indicator of impacts generated. 3.7 Operational Considerations An Impact fee rate determination based primarily on the ability of the community to maintain the same LOS as historically provided requires an understanding of the operational aspects of the Fire Department. Fire protection service is dependent upon the ability of manpower to reasonably respond to particular needs created by new growth. Unlike many community capital expenditures which are directly utilized by the residents, expenditures for fire capital items are only as valuable as the ability of the manpower available to use them. Additionally, fire services are as much related to property protection as they are to people protection. Buildings, whether occupied or unoccupied require protection. Persons traveling throughout the community still may require the services the Fire Department for emergency needs. Furthermore, personnel and equipment that is based on the south side of the City may be called to serve an area in the north west section of town. Because of this, a comprehensive approach must be considered when determining what the Fire Department's capital needs will be. Unlike most community infrastructure, fire services are available community-wide and are not location-dependent to ensure reasonable benefit to new users. Fire services may similarly add manpower and equipment to improve the ability to respond to a call. Fire services also must meet nationally recognized ISO standards which determine overall insurance rates throughout the community. These standards are related to not only the physical size of the community (to ensure adequate response times to emergencies) but also are equipment-related as well. Additionally, the Occupational Safety and Health Administration (OSHA) dictates many equipment standards which must be met. As discussed latter in Section 5, Ocoee's future fire needs are based on facilities and capital equipment that are intended to serve the entire City. All manpower, facilities, and equipment will reasonably available to respond to fire needs anywhere within the City limits. As long as adequate operational efficiency is maintained proportionate to expansion of the community, the use of impact City of Ocoee-Fire Impact Fee Study Page 10 City of Ocoee fees to achieve this service level will bear a reasonable relationship to new growth. For the reasons stated above, the continuation of distinct benefit zones for fire service is no longer warranted, and all additions to capital facilities and equipment will be assumed to add incremental service benefits to the community directly proportional to new growth. 3.8 Personnel Considerations As a practical matter, increased personnel levels will not necessarily match proportionate capital expenditures for facilities or equipment. Obviously, personnel can not be added in fractional increments, and many situations require a large-scale deployment of staff at one time. In some cases, personnel increases will lag behind proportionate investments in equipment which may add to the ability of the department to provide efficient service. But in most cases, the reverse situation may occur in cases of large scale capital items where trust fund amounts must grow over time to permit expenditures to be made. During these interim periods, it may be desirable to add personnel to increase use of available equipment until new facilities and/or equipment are acquired. As examples: prior to the purchase of a new fire engine, more firefighters are hired to permit additional use of an existing back-up fire engine that could only previously be brought into service using reserves; or, a complement of firefighters is hired prior to the opening of a new fire substation to permit adequate training in preparation for manning the new facility. In most cases where staffing levels and relative increases in capital acquisitions do not match, greater use of existing equipment is necessary to maintain service levels. This situation leads to additional wear and tear on existing equipment which adds to maintenance costs and accelerates replacement requirements. To a certain degree, then, there may be limited instances where impact fees could be used to replace existing equipment that is critical for maintenance of adequate service levels. This type of use should be justified only in cases where it is obvious that the accelerated depreciation and marginal increases in cost was caused by added use due to new growth and not to correct a deficiency. To the most practical degree possible, the City should maintain a reasonable relationship between personnel levels, capital expenditures from impact fees, and overall community growth. Even though these ratios may not precisely equal for short periods, over the twenty-year planning term an equitable balance should be met. Obviously, significant investments in additional facilities and equipment are of limited benefit unless adequate staff is also made available to make use of them. 3.9 Financial Considerations General assumptions regarding the financial aspects of impact fees must also be considered as a part of any methodology. These considerations are important to ensure that fees are equitably based and represent a reasonable means to derive the proportionate share of capital expenses to be charged to new growth. Presently, the Fire Department houses as much equipment and men as it can handle at its current stations. In fact, the administrative offices were recently moved to temporary trailers in order to free additional space for active personnel and equipment. For the purposes of this study, it is presumed that there is no excess operating capacity available in City of Ocoee-Fire Impact Fee Study Page 11 City of Ocoee the Fire Department, and that in order to expand services, added capital expenditures will be necessary. Without the use of impact fees to help fund the added costs caused by growth, existing residents and businesses would otherwise be required to pay an increased and disproportionate amount of taxes to support these development related needs. New development, to a large degree, will benefit from the existing capital facilities and equipment historically provided by the City of Ocoee. All of the existing resources of the City are immediately available to respond to any protective services needs in new growth areas. Alternatively, any new facilities paid by new growth will be available to help serve existing development. This type of overlapping Service is inherent with community-wide functions such as fire services. The distinction in these two cases is that the City presently provides a suitable LOS to serve the existing developed portions of the community. To maintain this LOS in new growth areas will require the community to incur substantial capital costs over time which otherwise would be unnecessary if growth had not occurred. Thus, it is assumed that no credits should be considered for overlapping services areas, nor should future new growth taxes be presumed to support any additional capital expenditures beyond those specifically being funded by impact fees. To the extent that any additional capital facilities are acquired in the future which improve LOS city- wide, it is presumed that new growth will pay its proportionate share through general taxation. In no case, however, shall new growth be required to pay twice for any proportionate share of community facilities provided. It is also presumed that costs associated with providing fire services to persons who do not reside in the community are shared equitably as part of an existing agreement with Orange County. The time/value aspects of money, in theory, also have some potential credit implications when developing impact fee rates. This concept assumes that, due to inflation, money collected today is worth more than the same amount collected in the future. Accordingly, the assumption is that funds should be prorated or discounted by some percentage to create an equitable fee. In reality, costs for capital facilities and equipment generally rise faster than inflation. This can be especially true where extraordinary costs are incurred due to circumstances beyond the control of the community. Rather than attempt to estimate future costs of capital items, impact fee rates are established based upon current needs and prices using the assumption that interest on collected funds will hopefully keep up with escalating costs. Thus, it is important for the City to review impact fee rates periodically and adjust them based upon actual growth rates being experienced and revised costs for facilities. This approach will help ensure that all contributors are paying an equitable proportion of new facility costs over time. Furthermore, it is anticipated that the need for certain buildings and equipment will occur before the City has collected sufficient impact fees to pay for them. Additional residential and commercial growth will require the City to purchase equipment to maintain existing service levels. Unfortunately the City cannot buy a portion of a fire truck or build part of a fire station. This will result in the City having to finance these purchases through bonds or other means. Therefore, the cost of financing these purchases will be included in the impact fee calculation proportional to the amount attributable to new growth. City of Ocoee-Fire Impact Fee Study Page 12 City of Ocoee SECTION FOUR: POPULATION AND LAND USE 4.1 Background The projection of population to the horizon year of the study forms the basis from which proportionate growth is determined. A corresponding projection of I I necessary land use to support the anticipated population forms the basis for 11' determination of numbers of dwelling units, square footage of commercial and ! industrial buildings, and related operational requirements. Obviously, it is important to project these growth determinants as accurately as possible to ensure that impact fee rates are realistic and equitable. The use of projections contained within the Ocoee Comprehensive _...::, Plan would typically be utilized for this exercise; however, the data used to 7t! develop this plan was based upon 1987 population estimated by BEBR in ,.' the, Florida Estimates of Population and projected to the year 2010. In ` " order to derive the best data and population projections, the Ocoee Planning Department projected population and employment growth to the year 2020 for the entire Ocoee Joint Planning Area. These projections S� were the result of a comprehensive review of numerous data sources _. related to population and employment, including: • A determination of future zoning and permitted uses, consistent with the Future Land Use Map of the Ocoee Comprehensive Plan, including permitted densities; • An inventory of all undeveloped land; • An inventory of all wetlands, floodplains and conservation areas; • An inventory of all approved and proposed developments, subdivision plans and planned unit developments (PUDs); • Institute of Transportation Engineers (ITE) data; • Trends in population growth, and • Consultation with the Orange County School Board (for future school enrollment and construction). 4.2 Historical Community Growth Ocoee is one of the fastest developing communities in Central Florida, with recent growth rates greater than that of both Orange County and the entire metropolitan region. From 1980 to 1990, the City experienced a population growth rate of 64 percent, roughly equivalent to that of the metropolitan area. However, between 1990 and 1995, the most recent year data for the region was available, the City of Ocoee-Fire Impact Fee Study Page 13 City of Ocoee City's population grew from just under 13,000 to approximately 18,500, an increase of 45 percent. This five year growth rate was almost three times that of both Orange County and the entire metropolitan area, which had population growth rates of 12 and 14 percent, respectively. Over the same time period, employment in Ocoee grew from just under 5,400 to almost 6,800, a 25 percent increase. This compares to population employment growth rates of 15 and 17 percent in Orange County and the Orlando metropolitan area, respectively. Subsequent to 1995, the City's population has grown at an even faster rate. According to a voter redistricting study conducted for the City in June of 1997, Ocoee's population was estimated at just over 21,000, almost 14 percent larger than it was two years earlier. Ocoee's phenomenal growth in relation to Orange County and the region is driven by both the availability of inexpensive developable land and easy access to other regional activity centers. Historically, the City of Ocoee's economy was predominately agriculture, livestock and related activities. However, the series of crop freezes in the 1980s virtually eliminated Ocoee's status as an agricultural center. The subsequent abundance of developable land, coupled with excellent access to regional transportation facilities, paved the way for rapid residential growth within the City. In addition to its role as a suburban community serving major employment centers such as downtown Orlando and Disney, Ocoee has also experienced growth in commercial, service and industrial land uses, as evidenced by the recent opening of the West Oaks Mall and Health Central Hospital. 4.3 Growth Patterns A majority of Ocoee's population has historically been located in a relatively small geographic area oriented toward the City's traditional center along Bluford Avenue. This area is roughly defined by White Road to the south, Clarcona-Ocoee Road to the north, Bowness Road and Bluford Avenue to the west, and Clarke Road to the east. Subsequent to this traditional residential development pattern, a shift toward the northeast occurred along Silver Star Road (SR 438), Apopka Vineland Road, and A.D. Mims Road in the form of new subdivisions. More recently, the paved extension of Clarke Road from SR 50 to Clarcona-Ocoee Road has spurred a significant portion of the City's new subdivision construction. Another significant source of recent population growth in Ocoee has been the construction of new subdivisions along Maguire Road to the south, between Tomyn and Roberson Roads. Although the residential development patterns in Ocoee have traditionally consisted of single family homes, more multi family developments are anticipated to occur. Recent estimates by the Ocoee Planning Department place the population of the Ocoee/Orange County Joint Planning Area (JPA) at just over 35,000. This population consists of approximately 10,736 single family residential units and 967 multi family units. The Ocoee JPA is shown on Figure 1 which is Ocoee's Existing Land Use Map as depicted in the Comprehensive Plan. Employment in Ocoee was traditionally supported by citrus, cattle and other activities related to agriculture, as well as small businesses in and around the town's historic center offering goods and services to the local population. As residential land uses have begun to rapidly replace previously agricultural land uses, employment in the City has grown as well, although at a lesser rate. The evolution of SR 50 into a major commercially oriented roadway has been a major source of this growth. Commercial centers have begun to develop where north-south roads, such as Maguire Road, City of Ocoee-Fire Impact Fee Study Page 14 Existing Lana use iviap -I 93 t r� sir- //,/ /po j// ., / , „„ //AP9Pe / iiiii- j " //// / /// ,- / o ,/ fl 13/4 - 1/40 et / � i 1 _. ' ►. • on 17 �. 1 J / // I IA P 7 d / Awe t it er NM i __.- ;.� �. 4 _1 r S A •%1 draft 8/15/97 • Ai ,: . . , Map Scale: A 0.5 0 1 Mile ri City of Ocoee 1997 Existing Land Use Legend Existing Land Use Map 1997 N CITY LIMITS .' LPA eouNDARY C LOW DENSITY RESIDENTIAL 1M INSTITUTIONAL N p10Nee_ pi MEDIUM DENSITY RESIDENTIAL WATER BODY Areasouintl of the AeaNP,e::e ErEEEnd ire cline Cl S PARKS•OPEN" Arenty doitPlannigArenpm v.Nisrtap are'thin the Dcoee-0nne 0 HIGH DENSITY RESIDENTIAL County Jainl Planning Area. ® PROFESSIONAL SERVICE I• CONSERVATION F"Prik a"".. m+mn'nt""d .w1 da o nn COMMERCML I VACANT Ca,'mlmpO✓> fem�n m..brn INDUSTRIAL 0 ROADS Tem moo eneWeMndeen^ed^^ „tea,.,,,,Cm:"mcma .," ;. 'minim,Inn Figure 1 City of Ocoee intersect SR 50. This growth continues to occur along the SR 50 corridor, highlighted by the opening in 1996 of the West Oaks Mall, a regional shopping center at the intersection of Clarke Road. With a size in excess of 1 million square feet, the West Oaks Mall has a market area which extends throughout much of Central Florida, including Lake and Orange counties. In addition, Health Central Hospital, a regional health care facility, opened just west of the mall on SR 50. West of the town's center, along Story Road and Bowness Road, the City has developed a relatively strong industrial base, highlighted by such businesses as the Central Florida Auto Auction, and SYSCO, a food distributor. A commercial activity center has recently developed at the intersection of Clarke Road and Silver Star Road, with the opening of two shopping centers in recent years. A summary of estimated population and employment characteristics in the Ocoee / Orange County Joint Planning Area is shown in Table 2. Table 2 1997 Existing Population and Employment Ocoee/Orange County Joint Planning Area Area 1980 1990 Change 1997 Change Population Ocoee 7,803 14,850 90% 35,105* 136% Orange County 470,865 677,491 44% 777,556 15% Metro Area 739,058 1,224,844 66% 1,428,620 17% Employment Ocoee N/A 6,534 N/A 8,892* 36% Orange County N/A 350,953 N/A 515,412 47% Metro Area N/A 612,750 N/A 729,583 19% Source. Ocoee Planning Department, 1997. The Ocoee area, as it pertains to 1997 population and employment, includes portions of unincorporated Orange County. (1980 and 1990 estimates include only the City) 4.4 General Population and Employment Projections The historic growth discussed in the previous sections demonstrates Ocoee's substantial increases in population and employment over the last several years. It is projected that the same growth patterns will continue in the future as depicted on the Future Land Use Map of the Comprehensive Plan (Figure 2). Although, most near-term residential growth is anticipated to continue to occur in the northeast and southern sections of the City, an increasing amount of residential development is also anticipated to occur in the north and northwestern sections of Ocoee once the Western Expressway is completed and utilities are available to this area. City of Ocoee-Fire Impact Fee Study Page 16 I . °` M - i Lake -�/////�. - dj.� 5 Apopka /( `C"' i' - 'i _ A1 C 4 ' �- A v\ 1t 'li d I __I Io E a :✓ dj 4 �— V Lakei _ '� r tiip P ✓ 7'!"-,-• pLr -- 1k < IT/4 .'l , r � , V�i Av4 \ , ,.: Fvo�—i t • — �f ' sue•-` • t� - �� I �� r ( , i Ciii) ,A.,- .z H 1 0 1 2 3 Miles 1. City of Ocoee Future Land Use Map_2010 • Activity Centers)Interchange Areas /v Proposed Western Beltway Cones of Influence(Water Wells) iv Principal Street Network Low Density Residential(<4 due) A/Ocoee City Limits 1999 Ocoee Orange County JPA Boundary 1 I Medium Density Residential(4-8 due) ��{ High Density Residential(8-16 duo) C,W rater Garden City Limits F4A Professional Service 7„a Orlando City Limits m Commercial Orange County Outside Planning Area �,Light Industrial Heavy Industrial Uj//Institutional/Government �Go .r \ LJ Lakes- Water Bodies t S + Canservatlon Areas �% -----®., {:' 1 (Recreation Areas Figure City of Ocoee During the last several years, the City has taken an active approach to annexation of additional land areas. In agreement with the County, a Joint Planning Area has been agreed upon which will ultimately enable the City to expand its boundaries slightly in all directions. With the anticipation that the continued increase of population and employment growth will continue into the future, the Ocoee Planning Department projected population and employment growth to the year 2020 for the entire JPA. To ease the projection effort, the City was divided into 97 geographic subareas which correspond to defined traffic analysis zones (TAZ's). The TAZ's allow for a more accurate existing land use inventory and a better assessment of future growth patterns. These zones were created as part of the Long Range Transportation Plan and Road Impact fee update. As mentioned previously, the projections were the result of a comprehensive review of numerous data sources related to population and employment, including: future zoning and permitted uses, the Ocoee Comprehensive Plan, an inventory of all undeveloped land, an inventory of all wetlands, floodplains and conservation areas, an inventory of all approved and proposed developments, subdivision plans and planned unit developments (PUDs), Institute of Transportation Engineers (ITE) data, trends in population growth, and information provided by the Orange County School Board (for future school enrollment and construction). The results of the data analysis and individual forecasts for population and employment are discussed below. 4.5 Population and Dwelling Unit Projections The results of population projections for Ocoee in the year 2020 can be seen in Table 3. The projections are also graphically shown on Figure 3, which shows the absolute change in population between 1997 estimates and 2020 within the study area. Table 3 Year 2020 Population Projections OcoeelOrange County Joint Planning Area Area 1997 2020 Change Population Ocoee 35,105' 68,154* 94% Orange County 777,556 1,231,100 58% Metro Area 1,428,620 2,078,400 45% Source, Ocoee Planning Department, 1997. *The Ocoee area, as it pertains to 1997 and 2020 population projections, includes portions of unincorporated Orange County. Based on these projections, it is apparent that a majority of the population growth will occur in the north and south portions of the study area. The most dynamic growth areas are located along the Clarcona-Ocoee Road and Maguire Road corridors, while pockets of population growth are also projected to occur adjacent to Clarke Road, SR 50, Ocoee-Apopka Road and Old Winter Garden City of Ocoee-Fire Impact Fee Study Page 18 Absolute Change CITY OF OCOEE JPA 1997 TO 2020 o- 250 POPULATION CHANGE 251 - 500 -ism.•. - ." 1 - . - • . oppimilli. = 501 - 1000 I'=�=� • • ® 1001 > .0• . . • . • Sp a..✓x r• 240 y1're+..fp; Y • �: 4'�",.., 54� .77- • �5�.. .(.y•^M' L„i".�..• ,r J - ,., `- ram $ - ar`^n --G., 327 553 i • _ `• 239 Y '23�'a •oh � • s .4T 1263 • 243 --. •r Pt � is a. t Y :¢-- . w,L '=w: S 242 +�^� �� }s .�T t 234 ' may../ • 304 K 569 -�325 • 5 9 tire"'- G tiY� • � 236 --' Z35 • 245 �- sea ‘ / 318 I 252 .323 31 5_0 I l 2,7t 153:-. w. — ( ` >� 315 . 251 3t9 r3 232 305 322 230 5, 541 542 ` 22 b1 t 217 -`'�F* ��•4'.gf 229 3S7 316 308 216 538 321 219 22C o 722 5 . ( 218 i 224 • 537 �5 :.. 225 227 °SB4:. 228 • 260 ` 312 255 �, -, ' a„.A' :� ., �. .Zr 214- .. "s. �:. v 1�/- 311 w • �F -• "` _ Figure 3 0 0-5 Miles City of Ocoee Road. The prevailing pattern of single family subdivisions will likely continue into the future. However, some growth will occur in multi-family residences as well. Based on the 1990 census data, BEBER's 1997 population estimate and the inventory of existing land uses, Ocoee has an average of 3.03 persons per single family dwelling unit and 1.72 persons per multi family dwelling unit. Assuming that these historic numbers will remain consistent into the future, the number of future dwelling units were projected using the amount of available developable land, permitted densities (using existing zoning, the Comprehensive Plan and Land Development Code), known permitted subdivisions, Planned Unit Development s (PUD's) and Development of Regional Impacts (DRI's). The projected number of dwelling units are shown in Table 4 below. Table 4 Year 2020 Dwelling Unit Projections Ocoee/Orange County Joint Planning Area Area 1997 2020 Change Single Family 10,736* 19,992` 9,256 Multi-Family 967 4,916 3,446 Total 11,703 24,405 12,702 Source. Ocoee Planning Department. 1997. *The Ocoee area, as it pertains to 1997 and 2020 population projections, includes portions of unincorporated Orange County. 4.7 Projected Non-Residential Growth The non-residential growth of the community must also be projected to equitably project service needs and allocate fees proportionately. Generally, over time, commercial and industrial development within a community will largely relate to its population growth, assuming no significant outside economic influences. Additionally, the relative proportionate use of land for residential, commercial, and industrial development generally remains reasonably constant over time. These assumptions notwithstanding, an analysis of recent socioeconomic trends revealed that Ocoee added only one new job for every four new residents since 1990, this gap between residents and jobs is anticipated to narrow in the future. In fact, the area's employment is projected to grow by nearly 23,000 by the year 2020; this increase represents one new job for every two new residents. Overall, the study area is anticipated to experience a 255 percent increase in employment from just over 9,000 jobs in 1997 to about 32,000 jobs in the year 2020, a substantial departure from recent employment growth rates. Increases in employment within the study area to the year 2020 are shown on Figure 4. City of Ocoee-Fire Impact Fee Study Page 20 •. Absolute Change . .. ..i... .. . CITY OF OECMOPELEOJYPMAE'IN9T97 TO 2020 . .. I 251 -500 ' 1 • 259 261 565 2. • - -) . 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New employment in this corridor will consist of commercial activities related to the Lake Latta Development of Regional Impact (DRI), medical professional offices and other related activities near Health Central Hospital, and commercial developments directly adjacent to SR 50. Commercial and service employment growth is also projected to occur along Maguire Road south of SR 50 and between Clarcona-Ocoee Road and Ocoee Apopka road in northwest Ocoee. The area's prime regional access will also encourage construction of more office buildings and their related uses, such as restaurants. Growth in industrial employment, which comprises about 20 percent of the total employment growth to 2020 in the study area, is anticipated to be concentrated in the industrial area west of Kissimmee and Maguire Roads, bounded by SR 438 and SR 50. This area contains distribution centers, such as SYSCO, as well as activities related to the Florida Auto Auction; increases in employment here will likely be of the same industrial nature. The construction of the Western Expressway in this sector of the City is expected to make a substantial contribution to its status as a regional distribution center. With an increase in employment there should also be an increase in commercial, office and industrial building square footage. To project the actual non-residential building space anticipated to be developed by the year 2020, commercial and industrial acreage must be multiplied by some factor which represents a typical utilization ratio of the land. Based on the Ocoee Comprehensive Plan commercial uses are permitted to develop up to a .3 Floor to Area Ratio (FAR) or 30 percent of the site. In Ocoee the traditional site coverage of a retail site has averaged 20 percent . Other commercial uses such as, office and service providers have averaged almost 30 percent site coverage. The remainder of the site is utilized for parking, landscaping, buffers, required setbacks, driveways, stormwater retention, and miscellaneous storage or loading areas. Based on the permitted FAR and the historical average site coverage, it is assumed that 25 percent of a commercial site will be used for actual buildings. In other words the average commercial site will develop at 10,890 square feet per acre. (43,560 sq. ft x .25 = 10,890 sq. ft) Although the Ocoee Comprehensive Plan permits Industrial uses to develop up to a .5 FAR or 50 percent of the site, the average site develops with 40 percent of the site covered with buildings. The reason for this is that most industrial sites in Ocoee have typically developed as industrial parks with many buildings and limited parking, (a FAR near .5), or as large single users with a single building and large paved lots for vehicles and equipment (a FAR near .3). Based on the permitted FAR and the historical average site coverage, it is assumed that 40 percent of an industrial site will be used for actual buildings. The average industrial site will develop at 17,424 square feet per acre. (43,560 sq. ft x .4 = 17,424 sq. ft) Assuming that these historic numbers will remain consistent into the future, the amount of future non- residential square footage was projected using the amount of available developable land, permitted densities (using existing zoning, the Comprehensive Plan and Land Development Code), known permitted projects, Planned Unit Development s (PUD's) and Development of Regional Impacts (DRI's). The projected amount of non-residential square footage is shown in Table 5 below. City of Ocoee-Fire Impact Fee Study Page 22 City of Ocoee Table 5 Year 2020 Projected Non-Residential Square Footage Ocoee/Orange County Joint Planning Area 2020 2020 Use Acreage Square Footage Commercial 682 7,426,980 Industrial 195 3,397,680 Total 877 10,824,660 Source. Ocoee Planning Department, 1997. The Ocoee area, as it pertains to 2020 acreage and square footage projections, includes portions of unincorporated Orange These projected numbers were also checked against the commercial and industrial projections made for the previous fire impact fee update. In that update, it was projected that the City's non-residential growth would exceed 8.4 million square feet from 1990 to the year 2000. In fact, the actual square footage built during this time period was less than 2 million square feet . The short fall between actual vs. projected can be attributable to numerous influences including the economic slowdown of the early 1990's. Although the shortfall of projected growth vs. actual would led to the collection of less fire impact fee revenues, it also would create a reduced demand for fire protection services. In summary, The commercial and industrial projections for the year 2020 should be considered conservative, since they are only slightly higher that the previous projections but for a planning period of 20 years vs. 10 years. City of Ocoee-Fire Impact Fee Study Page 23 City of Ocoee SECTION FIVE: FIRE/EMS SERVICES 5.1 Operational Background The Ocoee Fire Department operates from three stations, Station One located on Bluford Ave. in the center of the City, Station Three located on Maguire -- -•..- Rd. covering the area south of State Road 50, and Station Four located on Clarke Rd. covering the at I northeast area. Station One is a four bay station pa.. housing six (6) personnel that man a pumper and }y.�.*G,; .44 t rescue vehicle. The station also houses three (3) ffiSi t Chief officers two inspectors and three (3) clerical C staff, for a total of 13 personnel per day. Station One L. t !, which was constructed circa 1974 is approximately < 24 years old, and is approximately a 8,100 square foot facility that houses a pumper, rescue vehicle, rescue boat, disaster trailer, equipment, communications, living quarters and administrative offices. Station Three and Station Four are identical facilities constructed in 1997 and occupied in January of 1998. Both stations are 6,100 square foot facilities with three bays, a police substation, living quarters and storage areas. Both stations house four (4) personnel with the ability to accommodate two additional personnel at a later date. Station Three houses a first run pumper, and a reserve pumper. Station Four houses an aerial / pumper, a woods truck and a reserve rescue vehicle. Fire Station One is currently being utilized over its capacity accommodating the maximum number of personnel and vehicles for which it was designed. A office trailer is currently being leased to ease the overcrowding of Fire Station One and accommodate administrative personnel until Fire Station One can be relocated. The Fire Department normally operates on three shifts with 14 personnel on duty 24 hours and off duty 48 hours. The Fire Chief, Assistant Fire Chief, Support Chief, two Fire Inspectors, two full time and one part time clerical personnel normally work 8:00 a.m. to 5:00 p.m. each weekday. The current authorized headcount in the Fire Department is 49.5. On a typical call for service, one pumper and rescue vehicle with a full complement of six firefighters are deployed. On structure fires, accidents with entrapment and commercial fire alarms, two pumpers and a rescue vehicle with a complement of 10 firefighters and a chief officer are normally dispatched. The Ocoee Fire Department maintains mutual aid agreements with all surrounding fire departments in the Central Florida area, and a two year joint response agreement with Orange County for unincorporated areas adjacent to the City limits. All fire department personnel are certified as Emergency Medical Technicians (EMT) and are trained in Basic Life Support (BLS). The department has a dual response with Health Central Ambulance service who provide Advanced Life Support (ALS) and emergency transportation to medical facilities. City of Ocoee-Fire Impact Fee Study Page 24 City of Ocoee The Department is also active in fire prevention activities and regularly inspect commercial, industrial, institutional, and multi-family buildings to ensure that Fire Codes and safety conditions are adequately maintained. Public education is provided by both firefighters and inspectors to local schools and civic organizations to promote fire safety awareness through fire station tours, school programs, adult education classes and presentations. 5.2 Service Activity Fire Department activity levels have been steadily increasing over the last several years as a result of additional development and population. As shown in Table 6, the total annual Calls For Service (CFS) for fire and Emergency Medical Services (EMS) from 1995 to 1998 have increased dramatically at a rate equal to the overall population growth. Much of this increased activity is due to additional requests for emergency medical services, primarily to residential areas. Also shown in this table is a decrease in CFS from 1998 to 1999. This decrease was a direct result of the first full year of the City of Ocoee / Orange County Joint Response Contract. Under this contract, Orange County calls were reduced by 25% and Winter Garden calls by 70%. Department activity currently is averaging 250 CFS per month. Table 6 Calls for Service Summary Ocoee Fire Department Municipality 1995 1996 1997 1998 1999 Ocoee 1,829 2,165 1,972 2,301 2,408 Orange County 369 384 731 671 502 Winter Garden 76 98 99 79 23 Windermere 106 84 83 114 106 Total 2,380 2,731 2,885 3,165 3,039 % Change 8.7% 9.5% 9.1% (4%) Source: Ocoee Fire Department In order to ascertain the relative incidence of service activity provided to residential vs. Non- residential users, historical CFS must be examined to determine the general location and type of call received. The Fire Department maintains this data on an annual basis as additionally summarized in Table 7 below. These amounts include institutional and governmental CFS, although their incidence is not believed to significantly affect relative percentages. All calls for roadway and miscellaneous assistance have been split in what is historically believed to represent their relative incidence by location. City of Ocoee-Fire Impact Fee Study Page 25 City of Ocoee Table 7 Annual Calls For Service ( 1995 - 1999 ) By Location Percent of Location 1995 1996 1997 1998 1999 Total Total Residential 1,816 2,003 1,943 2,051 2,019 9,832 69.05% Non -Residential 564 728 942 1,152 1,020 4,406 30,95% Total CFS 2,380 2,731 2,885 3,165 3,039 14,238 100% Source: Ocoee Fire Department All though the five CFS average indicates a 70% residential 30% non-residential split the trend is that the Fire Department is responding to proportionally more non-residential calls today than in 1995. This trend coincides with the increase in commercial and industrial development in the City. It is anticipated that this trend will continue as Ocoee becomes more urban. Therefore, a 60% residential and 40% non-residential split will be used for the purpose of this study. 5.3 Personnel Levels The Ocoee Fire Department is presently authorized to provide a total of 42 firefighters , 7 full time and 1 part time administrative positions. Table 8 identifies the historical personnel allocation of the Fire Department which has been authorized on an annual fiscal year basis from 1995 through 1999. Table 8 Personnel Utilization Ocoee Fire Department Current Personnel 1995 1996 1997 1998 1999 Firefighter 24 32 42 42 42 Inspector 2 2 2 2 2 Administration 1 2 3 3 3 Clerical 1 2 2.5 2.5 2.5 Total 28 38 49.5 49.5 49.5 Source. Ocoee Fire Department, As shown above , the Fire Department has recently added positions to keep up with additional community growth during the 1995 - 1999 period. The addition of 18 firefighters has enabled the Department to open an additional station and meet recommended ISO guidelines. Unlike the Police Department, which can improve service levels with incremental increases in personnel, the Fire City of Ocoee-Fire Impact Fee Study Page 26 City of Ocoee Department must add personnel in groups of four to staff each shift equally. Additionally, the effectiveness of this additional personnel is largely related to the availability of large pieces of firefighting apparatus. Unless firefighters are deployed in appropriate teams to man the equipment properly, personal safety can become a problem, taking into consideration OSHA standards. Solely on the basis of the population projected to the horizon year, the City would need to add at least 12 firefighters ( a 25% increase) during the study period to maintain current staffing ratios. These new firefighters would work in four person teams covering three eight hour shifts every day. Thus, at the appropriate time when the fourth fire station is added, it would be required for Ocoee Fire Department to be expanded so that every shift was staffed with 19 firefighters. ( Four firefighters for stations 2, 3 and 4 and 7 firefighters for station number 1) Such a staffing approach would permit a much greater utilization of existing firefighting and EMS equipment and maintain service levels at historical rates within the community. 5.4 Service Standards In addition to providing adequate personnel to handle various service requests, the Fire Department must be within 1.5 miles of it's service area to respond to these calls within a specified time period to maintain ISO property insurance ratings in the community. As a practical matter, this response time standard (5 minutes) is also based upon recognized industry standards not only having to do with property protection, but also medical standards. In each case, it is necessary to reach property and persons within this time frame to maximize the effectiveness of fire suppression activities and/or emergency medical care. Based upon recent experience, the Fire Department can maintain the 5 - minute response standard within current City limits, with the possible exception of the northwest sector of the community. This area of the City is anticipated to absorb the majority of low-density residential and industrial growth during the ten-year study period. Accordingly, a fourth fire station will need to be provided in this area to maintain service standards for new development. Other service standards in addition to personnel, equipment, and response times are commonly used to determine the adequacy of fire/EMS services. One typical determinant is the ability of the Fire Department to suppress various types and potential intensities of fires based upon building risk factors. A single family residential fire, for example, would be easier to contain than a large scale shopping center fire. Different risk levels are assigned to a range of building classifications based upon use, bulk, height, and building standards. These, in turn, are related to the ability of the community to deploy appropriate personnel, equipment, and water capacity to the fire location. 5.5 Facilities and Equipment Inventory The existing capital investment made by the City of Ocoee to support its Fire Department includes land, buildings, furnishings, vehicles, and equipment. As with any asset, the individual items which make up the total capital goods of the Fire Department have varying useful lives and values. Since impact fee rates must be based upon the current costs of goods which need to be added to the capital facilities and equipment of the community, it is necessary to estimate the replacement costs of existing capital items to provide a common basis for comparison. Table 9 reflects the current inventory of the Ocoee Fire Department. City of Ocoee-Fire Impact Fee Study Page 27 City of Ocoee Table 9 Inventory of Capital Items Ocoee Fire Department Item Cost(in $) (Buildings and Property) Fire Station One 350,000 Fire Station Three 1,050,000 Fire Station Four 940,000 Maguire Rd. property 315,000 (Furniture and Equipment) Station One Furniture 27,400 Station Three Furniture 36,800 Station Four Furniture 36,700 (Apparatus and Vehicles) Engine One 250,000 Engine Two (reserve) 116,000 Engine Three 250.000 Engine Four 340,000 Rescue One 84,000 Squad One (reserve) 96,000 Squad One 190,000 Rescue Boat 18,000 Fire Chief Vehicle 14,000 Asst. Chief Vehicle 28,000 Support Chief Vehicle 14,000 Inspector One Vehicle 12,000 Inspector Two Vehicle 9,000 Disaster Trailer 8,300 (Tools and Equipment) Engine One 29,500 Engine Two 3,000 Engine Three 24,600 Engine Four 31,800 Rescue One 19,900 Squad One (reserved) 23,500 Squad One 60,000 (Radios) Mobile 23,650 Portable 70,300 Headsets 4,700 Chargers 2,500 City of Ocoee-Fire Impact Fee Study Page 28 City of Ocoee Table 9 Inventory of Capital Items Ocoee Fire Department Item Cost(in$) (Buildings and Property) Fire Station One 350,000 Fire Station Three 1,050,000 Fire Station Four 940,000 Maguire Rd. property 315,000 (Furniture and Equipment) Station One Furniture 27,400 Station Three Furniture 36,800 Station Four Furniture 36,700 (Apparatus and Vehicles) Engine One 50,000 Engine Two (reserve) Engine Three 11 a 000 Engine Four 250.010 Rescue One 340,010 Squad One (reserve) 84,00t Squad One 96,000 Rescue Boat 190,000 Fire Chief Vehicle 1;,000 4,000 Asst. Chief Vehicle 28,000 Support Chief Vehicle 14,000 Inspector One Vehicle 12,000 Inspector Two Vehicle 9,000 Disaster Trailer 8,300 (Tools and Equipment) Engine One 29,500 Engine Two 3,000 Engine Three 24,600 Engine Four 31,800 Rescue One 19,900 Squad One (reserved) 23,500 Squad One 60,000 (Radios) Mobile 23,650 Portable 70,300 Headsets 4,700 City of Ocoee-Fire Impact Fee Study Page 28 City of Ocoee Item Cost (in $) Batteries 1,150 (Other) Disaster Trailer Equipment 21,600 Air Compressor 23,700 Uniforms 29,000 Computers 52,600 Hose 47,200 Bunker Gear 80,400 TOTAL: 4,734,300 Source: Ocoee Fire Department It should be noted that a significant portion of the equipment noted above has been purchased with impact fees collected since 1990. The fees collected were the result of almost 2 million square feet of commercial development and the addition of over 8,000 residents. As discussed in the next section, it is anticipated that the City will need to make substantial investments in buildings and equipment in order to maintain existing fire service levels as the City adds new residents and businesses. 5.6 Future Fire Needs Unlike the Police Department, which can largely provide increased equipment on an incremental basis, the Fire Department must project its needs based upon a specific list of capital facilities and equipment which will enable it to maintain adequate service levels. In order to ascertain the anticipated capital expenditures which will be required, an analysis of future needs is appropriate. These needs are based upon the growth trends outlined in the City's Comprehensive Plan as previously summarized in this study. The actual spatial location of development and rate of growth, however, will largely dictate the need to deploy personnel and equipment in a manner which maintains Level of Service standards. The City will need to monitor the timing of needed capital facilities based upon actual growth patterns experienced. As detailed in the recently approved Ocoee Community Fire Protection Strategic Plan, there is a need to relocate Fire Station One to a central location in the City. The facility will require approximately 22,500 square feet to accommodate response crews and administrative personnel. The size of this facility was determined using existing space needs and a projection of future need based on population growth. Based on the projected growth trends, it is anticipated that 48.5% of the new facility will utilized for new growth. ( 33,049 new residents / 68,154 total population = .485 ) Anticipated growth along the SR 50 corridor will require increased staffing at Fire Station One to maintain service standards for this new development. Specialized equipment and apparatus located at Fire Station One, such as the Heavy Rescue Unit, the Marine Rescue Boat, Disaster Trailer, and Reserve Engine will benefit all districts within the City, serving as a "hub" to provide back-up for all other Fire Stations within the City. Table 10 details the projected timeline of relocating Fire Station One, as it appears in the Five Year Capital Improvement Program. City of Ocoee-Fire Impact Fee Study Page 29 City of Ocoee Item Cost (in $) Chargers 2,500 Batteries 1,150 (Other) Disaster Trailer Equipment 21,600 Air Compressor 23,700 Uniforms 29,000 Computers 52,600 Hose 47,200 Bunker Gear , 80,400 TOTAL: ia734,300 Source: Ocoee Fire Department It should be noted that a significant portion of t - equipme.t noted above has been purchased with impact fees collected since 1990. The fees collet':d wer: the result of almost 2 million square feet of commercial development and the addition of over 8,10r residents. As discussed in the next section, it is anticipated that the City will need to make subst- ttial investments in buildings and equipment in order to maintain existing fire service levels as the C' y -.ds new residents and businesses. 5.6 Future Fire Needs Unlike the Police Department, which can I.rgely provide increased equipment on an incremental basis, the Fire Department must project it! needs based upo • a specific list of capital facilities and equipment which will enable it to maintain adequate servic: levels. In order to ascertain the anticipated capital expenditures which I be required, an analysi• of future needs is appropriate. These needs are based upon the Growth trends outlined in th:e City's Comprehensive Plan as previously summarized in this stud . The actual spatial location of.development and rate of growth, however, will largely dictate the need to deploy personnel and equipment in a manner which maintains Level of Service standards. The City will need to monitor the timing of needed capital facilities based upon actual gro h patterns experienced. As detailed in the recently ap. oved Ocoee Community Fire Protection Strategic Plan, there is a need to relocate Fire Station One/to a central location in the City. The facility will require approximately 22,500 square feet to accommodate response crews and administrative personnel. The size of this facility was determined using existing space needs and a projection of future need based on population growth. Based on the projected growth trends, it is anticipated that 48.5% of the new facility will utilized for new growth. ( 33,049 new residents / 68,154 total population = .485 ) Anticipated growth along the SR 50 corridor will require increased staffing at Fire Station One to maintain service standards for this new development. Specialized equipment and apparatus located at Fire Station One, such as the Heavy Rescue Unit, the Marine Rescue Boat, Disaster Trailer, and Reserve Engine will benefit all districts within the City, serving as a "hub" to provide back-up for all other Fire Stations within the City. Table 10 details the projected timeline of relocating Fire Station One, as it appears in the Five Year Capital Improvement Program. City of Ocoee-Fire Impact Fee Study Page 29 City of Ocoee Table 10 Fire Station One Relocation Item Year Estimated Cost (in $) Land Acquisition 2000 200,000 Design 2000 276,131 Construction 2001 2,301,092 Off Site Construction Cost 2001 350,000 Demolition Cost ( Existing Station) 2004 75,000 Ladder Truck 2005 500,000 Miscellaneous Capital Equipment 2005 900,000 Ambulance (4) 2005 460,000 Hazard Material Truck 2005 300,000 Tanker Truck 2005 150,000 Platform Truck 2005 800,000 Radio Communication System* 2006 750,000 Furnishings 2002 148,220 Total 7,210,443 Source: Ocoee Fire Department 'Total system cost is $1.5 million. Cost is split between the police and fire departments As previously identified, there is an absolute need to provide a fourth station in the northwest sector of Ocoee to maintain adequate ISO response distances within this area. Based upon the projected development which is anticipated to occur within the next ten years, practically all of the existing acreage in this area, within the current City limits, is expected to be subdivided for low density residential growth. Additionally, a limited amount of commercial and industrial growth is anticipated to occur along the Western Expressway corridor. The station itself will initially be designed to accommodate a minimum complement of new vehicles, staff, and equipment. This would include one pumper, one rescue transport vehicle, and living quarters for four (4) firefighters on each shift (12 total) including associated furnishings and equipment. Related site improvements such as parking, driveways, water, sewer, drainage, and landscaping would also need to be provided at the time of construction. In addition to the fire station a training facility is planned for the Fire Station Two site. This will be comprised of a training tower, smoke building, burn building, apparatus yard and classrooms. The training facility is required for maintaining ISO ratings, and to provide the Fire Department the ability to train within the City limits. Using the existing vs. new growth formula that was applied to Fire Station One, it is anticipated that 48.5% of the training facility is the responsibility of new growth. Table 11 details the projected timeline for Fire Station Two facilities. City of Ocoee-Fire Impact Fee Study Page 30 City of Ocoee Table 11 Fire Station Two facilities Item Year Estimated Cost (in $) Land Acquisition 2000 $300,000 Construction 2005 $1,000,000 Design 2004 $100,000 Furnishings 2005 $150,000 Pumper 2005 428,000 Brush Truck 2005 $100,000 Total $2,078,000 Source: Ocoee Fire Department *Fire Station Two includes training facilities and is expected to serve existing development. Timing of the acquisition of land and subsequent building construction/equipment purchases are dependent upon growth rates and revenues available. It is in the best interests of the community to acquire an appropriate site as quickly as possible to minimize costs. Construction of the station should be timed within the middle of the planning period if at all possible rather than at the end of the study period to ensure that adequate fire services are maintained during the development cycle. Since all projected impact fee funds might not be collected by the time of actual construction, it may be necessary for the City to loan moneys to the trust fund temporarily until revenues match actual costs. Even though Fire Station Two more spatially benefits the northwest sector of the community, the addition of personnel and equipment to the overall Fire Department benefits the community as a whole due to operational considerations. Personnel and equipment from any of the four stations may be moved up to cover another area within the City when its regularly assigned crew is committed on another emergency. For this reason, impact fees generated within any area of the City will ultimately benefit from proportionate increases in fire and emergency protection services. In summary, the anticipated future ten-year capital facility and equipment needs of the Ocoee Fire Department required by new growth will largely be accommodated by the construction and equipping of a new fire station in the northwest sector of the community. Relocation of the main fire station to accommodate an increase in personnel and equipment is also absolutely necessary. The addition of these improvements, equipment, and personnel will ensure that existing level of service standards will be maintained as new development occurs throughout the community. Although the $9.2 million in capital needs over the next twenty years is more than double the amount of impact fees collected during the past ten years, it is projected that the City will add 400 percent more residential units and 500 percent more commercial and industrial growth during the next twenty years than the City added during the previous ten years. City of Ocoee-Fire Impact Fee Study Page 31 City of Ocoee 6.7 Fire Impact Fee Determination Having gathered, analyzed, and projected all of the foregoing information, it is possible to determine the theoretical proportionate share of fire impact fee rates for residential and non- residential land uses. These fees are calculated on the following two pages. Year 1997 JPA population: 35,105 Year 2020 JPA population: 68,154 New population growth by the year 2020: 33,049 Capital investment needs by the year 2020: $9,228,443 Finance charges on capital investments through the year 2020: $9,998,761 (Based on capital needs and First Union Securities Actuary Table for GO Bonds dated April 25.2000. Includes remaining bond payoff of$3,640,250 for Fire Stations 3&4) Total capital and finance charges by year 2020: $19,227,204 Total capital and finance charges for new growth: $19,227,204 X .485 = $9,325,193.94 Impact fees still on deposit: $1,638,383 Total capital and finance charges minus existing fees on deposit: $7,686,810.94 Number of new residential dwelling units to be added in the JPA: 12,702 DU ( assumes each dwelling unit is 2,000 sf on average) City of Ocoee-Fire Impact Fee Study Page 32 City of Ocoee Amount of non-residential building square footage to be added in the JPA: 10,824,660 sq. ft. Percentage ratio of residential vs. non-residential CFS: 60%:40% Capital investment per square foot of residential construction proportionate to CFS: $7,686,810.94 x .60 = $4,612,086.56/ 12,702 DU /2,000 sf= $0.182 per sq. ft. Capital investment per square foot of non-residential space proportionate to CFS: $7,686,810.94 x .40 = $3,074,724.38/ 10,824,660 sf= $0.284 per sq. ft. City of Ocoee-Fire Impact Fee Study Page 33 City of Ocoee SECTION SIX: CONCLUSIONS This study of the Ocoee Fire Departments' future needs has demonstrated that significant additional capital investment will be necessary to maintain current Level of Service standards for the Ocoee community. The determination of the proportionate share of these costs attributable to new growth has been undertaken using 0 .. / .. ,M, • accepted methodology geared to the unique circumstances of a 1 x,a Ocoee. The final recommended fee rates are believed to be - a. equitable and legally defensible under the "rational nexus" test as v . D well as under other generally accepted legal criteria. It has been demonstrated that the City of Ocoee has no excess fire c�~rfR ofG000 `�A`ro service capacity available to accommodate the needs of future development, and that new growth will, at a minimum, proportionately add to community service requirements. These requirements correspondingly must be supported by large scale capital expenditures. It has been shown that the collection and use of these funds will reasonably benefit the contributors by providing comparable service at levels currently enjoyed by existing users. Additionally, the recommended rate schedule was ultimately set to ensure that no windfall of revenue derived from the fees would benefit existing users or make up for any prior system deficiencies. The following recommended impact fee rates for fire services are based upon the best available information and careful analysis of all study findings. They represent what are believed to be the most fair and equitable fees which may be charged by the City of Ocoee to aid in providing needed capital facilities and equipment required by new growth through the year 2020. Recommended Fire Impact Fee Rates Residential: $0.182 per sq. ft Non-Residential: $ 0.284 per sq. ft Based on the above fire impact fee rates and the projected growth of 12,702 dwelling units and 10,824,660 sq. ft. of non-residential development it is anticipated that the City will collect the following impact fee revenues by the year 2020: Anticipated Impact Fee Collections Residential: 12,702 units x 2,000 sq. ft. x $0.182 per sq. ft = $4,623,528 Non-Residential: 10,824,660 sq. ft. x $ 0.284 per sq. ft = $3,074,203.44 Total Fire Impact Fees Collected : $7,697,731.44 City of Ocoee-Fire Impact Fee Study Page 34 City of Ocoee Table 22 Proposed Fire Impact Fee Comparison By Community County/ City Residential Non-residential Orange County $148.69 du $0.02238 to $0.22987 sq. ft. Apopka $0.00 du $0.00 du / $0.00 du Belle Isle $0.00 du $0.00 du / $0.00 du Edgewood $148.69 du $0.02238 to $0.22987 sq. ft. Maitland $0.00 du $0.15 sq. ft Oakland $100.00 Flat Fee $100.00 Flat Fee Ocoee $0.182 sq. ft $0.284 sq. ft Orlando $0.00 du $0.00 sq. ft. Winter Garden $165.00 du $0.097 sq. ft. Winter Park $0.00 du $0.00 sq. ft. Osceola County $0.00 du $0.00 sq. ft. Kissimmee $0.00 du $0.00 sq. ft. St. Cloud $0.00 du $0.00 sq. ft. Seminole County $172.00 du $0.01 to $0.684 sq. ft. Altamonte Springs $0.00 du $0.00 sq. ft. Casselberry $0.00 du $0.00 sq. ft. Lake Mary $175.00 du $0.129 sq. ft. Longwood $0.00 du $0.00 sq. ft. Oviedo $205.00 du $0.25 sq. ft. Sanford $59.27 du $0.025 to $0.0345 sq. ft. Winter Springs $103.63 du $0.28 sq. ft. City of Ocoee-Fire Impact Fee Study Page 35