HomeMy WebLinkAboutItem #16 Evaluation and Appraisal Report - Adoption
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AGENDA ITEM COVER SHEET
Meeting Date: September 21, 2010
Item # 10
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Contact Name:
Contact Number:
Craig Shadrix
X 1 081
Reviewed By:
Department Director:
City Manager:
Subject: Evaluation and Appraisal Report
Background Summary:
Under State law, every jurisdiction in the State of Florida must evaluate how well it has performed at meeting
the goals, objectives, and policies of the Comprehensive Plan. The City must also determine what changes are
needed in the plan to reflect the community's vision for the future. The result of this evaluation process is an
official report known as the Evaluation and Appraisal Report (EAR). The purpose of the EAR is to review the
adopted Comprehensive Plan to determine how well the City is meeting State mandated planning requirements,
implementing the Goals, Objectives, and Policies as set forth in the Comprehensive Plan, and addressing major
growth management issues within the City. Various tools are then proposed to address the issues raised by
the community and public officials.
The outcome of the EAR Process is to:
1) Evaluate the effectiveness of the City's current adopted Comprehensive Plan in achieving the
City's established Goals, Objectives and Policies;
2) Create a composite set of critical issues regarding growth management that the City will
evaluate during an update and amendment to its Comprehensive Plan; and
3) Identify alternatives/potential tools that the City will evaluate with regard to each of those
issues.
This EAR for the City of Ocoee provides the review and analysis of the City's current Comprehensive Plan to
assure that it is meeting the needs and reflecting the future vision of the community. Through the thorough
review and analysis of local issues and special topics, the EAR provides the framework for the update to the
City's Comprehensive Plan.
City held a Scoping meeting to discuss the major issues identified by the City that serve as a major basis for the
evaluation on March 5, 2009. The City's major issues list was approved by the Florida Department of
Community Affairs on May 29, 2009, and staff has subsequently prepared the evaluation presented. The Major
Issues identified include:
1) Community Character and Design
2) Transportation Connectivity
3) Utility Infrastructure
4) Mixed Use Employment and Commercial Centers
5) Neighborhood Revitalization/Housing
6) Conservation
Issue:
Should the Honorable Mayor and City Commissioners approve The City of Ocoee 2010 Evaluation and
Appraisal Report?
Recommendations:
PLANNING AND ZONING COMMISSION RECOMMENDATION:
The proposed Evaluation and Appraisal Report was reviewed at a Public Hearing by the Planning and Zoning
Commission acting as the Local Planning Agency (LPA). The Planning and Zoning Commission, acting as the
LPA recommended approval of the proposed Evaluation and Appraisal Report as presented.
STAFF RECOMMENDATION:
Staff recommends that the Honorable Mayor and City Commissioners approve The City of Ocoee 2010
Evaluation and Appraisal Report for transmittal to the Florida Department of Community Affairs.
Attachments:
Resolution
Evaluation and Appraisal Report
Financial Impact:
Type of Item: (please mark with an "x")
X Public Hearing
Ordinance First Reading
Ordinance Second Reading
Resolution
Commission Approval
Discussion & Direction
For Clerk's Deot Use:
_____ Consent Agenda
Public Hearing
Regular Agenda
Original DocumenUContract Attached for Execution by City Clerk
== Original DocumenUContract Held by Department for Execution
Reviewed by City Attorney
Reviewed by Finance Dept.
Reviewed by 0
N/A
N/A
N/A
O:\Staff Reports\Staff Reports 201 O\SR1 00058_CAS_EAR_CC.doc
2
RESOLUTION NO.
A RESOLUTION OF THE CITY OF OCOEE, FLORIDA,
ADOPTING THE EVALUATION AND APPRAISAL
REPORT FOR THE CITY OF OCOEE COMPREHENSIVE
PLAN; STATING THE INTENT OF THE CITY
COMMISSION TO AMEND THE COMPREHENSIVE
PLAN BASED UPON RECOMMENDATIONS CONTAINED
IN THE REPORT; AND APPROVING THE TRANSMITTAL
OF THE REPORT TO THE DEPARTMENT OF
COMMUNITY AFFAIRS IN ACCORDANCE WITH
SECTION 163.3191, FLORIDA STATUTES; PROVIDING
FOR SEVERABILITY; PROVIDING FOR CONFLICTS;
PROVIDING AN EFFECTIVE DATE.
WHEREAS, on September 18, 1991, the City Commission of the City of Ocoee
(the "Ocoee City Commission") adopted the City of Ocoee Comprehensive Plan pursuant to
Chapter 163, Florida Statutes, as set forth in Ordinance No. 91-28, which has been amended
from time to time (the "Ocoee Comprehensive Plan"); and
WHEREAS, under Section 163.3191 of the Florida Statutes, the City has the
responsibility to periodically adopt an Evaluation and Appraisal Report to assess the progress of
implementing the Ocoee Comprehensive Plan and evaluate the Ocoee Comprehensive Plan in
effect at the time the Evaluation and Appraisal Report process was initiated; and
WHEREAS, in satisfaction of this requirement, the City has prepared the
Evaluation and Appraisal Report for the City of Ocoee Comprehensive Plan attached hereto as
Exhibit" A" and by this reference made a part hereof (the "EAR"); and
WHEREAS, on September 14,2010, the City ofOcoee Planning and Zoning
Commission, acting as the City's designated Local Planning Agency, at an advertised public
hearing providing for participation by the public in the process in accordance with the
requirements of state law, recommended adoption of the EAR to the Ocoee City Commission;
and
WHEREAS, on September 21,2010, the Ocoee City Commission held an
advertised public hearing providing for public participation in the process in accordance with the
requirements of state law in order to obtain public comment regarding the EAR; and
WHEREAS, the Ocoee City Commission has considered all oral and written
comments received during the public hearings, including the recommendations of the Local
Planning Agency; and
ORLA_1613856.1
WHEREAS, the Ocoee City Commission desires to adopt the EAR in
compliance with Section 163.3191 of the Florida Statutes.
NOW, THEREFORE, BE IT RESOLVED BY THE CITY COMMISSION
OF THE CITY OF OCOEE, FLORIDA, AS FOLLOWS:
SECTION 1. Recitals. The above recitals are true and correct and incorporated
herein by this reference.
SECTION 2. Authority. The Ocoee City Commission has the authority to adopt
this Resolution pursuant to Article VIII of the Constitution of the State of Florida and Chapter
163 and Chapter 166, Florida Statutes.
SECTION 3. Adoption of the EAR. The Ocoee City Commission hereby
adopts the EAR to allow for amendment to the Ocoee Comprehensive Plan.
SECTION 4. Intent to Amend the Comprehensive Plan. The Ocoee City
Commission hereby states its intention to amend the Ocoee Comprehensive Plan in accordance
with the recommendations set forth in the EAR.
SECTION 5. Transmittal of the EAR. The Ocoee City Commission hereby
designates the Development Services Director as the designee of the City Commission to
transmit the adopted EAR to the Department of Community Affairs pursuant to the requirements
of Section 163.3191, Florida Statutes, and Rule 9J-l1.018, Florida Administrative Code for a
determination of sufficiency.
SECTION 6. Severability. If any section, subsection, sentence, clause, phrase
or portion of this Resolution 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.
ORLA_1613856.1
-2-
SECTION 7. Conflict. All Resolutions and parts of Resolutions in conflict
herewith are hereby repealed.
SECTION 8. Effective Date. This Resolution shall become effective
immediately upon passage and adoption.
PASSED AND ADOPTED this _ day of September, 2010.
ATTEST:
Beth Eikenberry, City Clerk
(SEAL)
FOR USE AND RELIANCE ONLY
BY THE CITY OF OCOEE, FLORIDA;
APPROVED AS TO FORM AND LEGALITY
this _ day of September, 2010.
FOLEY & LARDNER LLP
By:
City Attorney
ORLA_1613856.1
APPROVED:
CITY OF OCOEE, FLORIDA
S. Scott Vandergrift, Mayor
ADVERTISED:
APPROVED BY THE OCOEE CITY
COMMISSION ON: ,2010
UNDER AGENDA ITEM NO.
-3-
EXHIBIT" A"
Evaluation and Appraisal Report
ORLA_1613856.1
-4-
,._x.
~
City of Ocoee
Evaluation and Appraisal Report
CITY OF OCOEE
COMPREHENSIVE PLAN
EVALUATION AND APPRAISAL REPORT
(EAR)
September 2010
Prepared For:
City of Ocoee
Development Services Department
150 North Lakeshore Drive
Ocoee, Florida 34761
Prepared By:
City of Ocoee
Development Services Department
City of Ocoee
Evaluation and Appraisal Report
TABLE OF CONTENTS
I. INTRODUCTION
A. Purpose of the EAR
B. City Profile
C. Public Participation Process
D. NW Sector Study
E. City's CRA Planning Efforts
II. ANALYSIS OF ISSUES
A. Changes in Population
B. Changes in Land Area
C. Vacant Land for Future Development
D. Level of Service (LOS) Analysis and Financial Feasibility
1. Potable Water
2. Sanitary Sewer
3. Stormwater/Drainage
4. Solid Waste
5. Parks and Open Space
6. Transportation
7. Financial Feasibility of Future Infrastructure
E. Location of Development Activities
F. Coordination with School Planning
G. Water Supply Planning
H. Changes in Growth Management Law [163.3191(2)(f), FS]
1. Overview
2. State Comprehensive Plan
3. Strategic Regional Policy Plan
4. Changes to Chapter 163, F.S. and Rule 9J-5, F.A.C.
I. Issues of Local Concern
1. Community Character and Design
2. Transportation Connectivity
3. Utility Infrastructure
4. Mixed-Use Employment and Commercial Centers
5. Neighborhood Revitalization
6. Conservation
J. Assessment of Successes and Shortcomings for Each
Element
City of Ocoee
Evaluation and Appraisal Report
List of Figures
List of Maps
City of Ocoee
Evaluation and Appraisal Report
I. INTRODUCTION
The State of Florida regulates local government comprehensive planning through
Chapter 163, Part II of Florida Statutes (F.S.). These laws mandate that a long-
range, comprehensive planning program be established and maintained as a
continuous and ongoing process. Section 163.3191, F.S., requires all local
governments in Florida to adopt an evaluation and appraisal report (EAR) once
every seven years assessing the progress in implementing the local
government's comprehensive plan. The process also provides an opportunity to
address changes that have occurred since the Comprehensive Plan's adoption
or previous EAR. The EAR process leads to EAR-based comprehensive plan
amendments, which modify the existing plan in accordance with the evaluation
and recommendations of the EAR. Prior to developing the EAR, the local
government establishes the Major Issues facing the community. The analysis of .
each Major Issue describes it within the context of local history and current
conditions, and provides an analysis of the achievements of the plan's objectives
relating to each Major Issue. The identified Major Issues for City of Ocoee
evaluated in this EAR are:
. Community Character
. Transportation connectivity
. Utility Infrastructure
. Mixed Use Employment and Commercial Centers
. Neighborhood Revitalization
. Conservation
The State of Florida requires local governments to address several special
topics, when relevant, per Sections 163.3191 (2)(k)-(p), F.S. The required special
topics relevant to the City of Ocoee include the following. In 2010, an ordinance
was passed amending the City of Ocoee's Comprehensive Plan in order to
comply with the Wekiva Parkway and Protection Act.
In 2008, the City entered into a settlement agreement with the Florida
Department of Community Affairs (DCA) allowing for the approval of the City's
Comprehensive Plan policies as related to the Wekiva Protection Act.
In 2008, a Public School Facilities Element was incorporated into the
Comprehensive Plan in compliance with State law. The City also entered into an
interlocal agreement with Orange County and the Orange County School Board
for public school facility Planning and School Concurrency.
Based on the Major Issues and special topics identified for the City, the following
changes are recommended for the Comprehensive Plan. Additional changes are
specifically recommended within each section of this EAR.
City of Ocoee
Evaluation and Appraisal Report
A. EAR Purpose:
Under state law, every jurisdiction in the State of Florida must evaluate how well
it has performed at meeting the goals, objectives, and policies of the
Comprehensive Plan. The City must also determine what changes are needed in
the plan to reflect the community's vision for the future. The result of this
evaluation process is an official report known as the Evaluation and Appraisal
Report (EAR). The purpose of the EAR is to review the adopted Comprehensive
Plan to determine how well the City is meeting State mandated planning
requirements, implementing the Goals, Objectives, and Policies as set forth in
the Comprehensive Plan, and addressing major growth management issues
within the City. Various tools are then proposed to address the issues raised by
the community and public officials.
The outcome of the EAR Process is to:
1) Evaluate the effectiveness of the City's current adopted
Comprehensive Plan in achieving the City's established Goals,
Objectives and Policies;
2) Create a composite set of critical issues regarding growth
management that the City will evaluate during an update and
amendment to its Comprehensive Plan; and
3) Identify alternatives/potential tools that the City will evaluate with
regard to each of those issues.
Section 163.3191, F.S., requires all local governments in Florida to adopt an
evaluation and appraisal report (EAR) once every seven years assessing the
progress in implementing the local government's comprehensive plan. A major
difference between this EAR and the previous EAR prepared by the City is that
this time the assessment of the plan focuses on the major planning issues
currently affecting the community.
This EAR for the City of Ocoee provides the review and analysis of the City's
current Comprehensive Plan to assure that it is meeting the needs and reflecting
the future vision of the community. Through the thorough review and analysis of
local issues and special topics, the EAR provides the framework for the update to
the City's Comprehensive Plan.
B. City Profile
The City of Ocoee is located in west Orange County, southeast of Lake Apopka.
The location of the City is shown in figure 1.The City is approximately 19 sq miles
in size and had a population of 33,658 in 2009 (Source: UF Bureau of Economics
and Business Research). The City is low to medium density residential in
character except for commercial development along SR 50 and Clark Road.
Fourteen parks make up the recreation opportunities in Ocoee.
City of Ocoee
Evaluation and Appraisal Report
6)
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City of Ocoee Location Map
Historically, the City of Ocoee was built as a small agricultural town supported by
the local citrus industry. The town was first settled adjacent to Starke Lake,
southeast of Lake Apopka in the mid-1800's. Though still a small town, by 1886
the settlement was officially known as Ocoee. Ocoee remained a small town
through the mid 1900's when the rapidly expanding Orlando Metropolitan Area
began to grow westward. As recently as 1960, the population was estimated at
only 2,500, but this population would increase rapidly as several major roadways
were constructed through the City, creating a more accessible environment.
Key milestones in the life cycle of the City to date include:
1) State Road 50 (SR 50) was constructed south of downtown Ocoee in
1959 and provided a direct east-west connection between the City and a
growing Orlando. The development of SR 50 made Ocoee more
accessible and attractive to development of new housing stock on
properties with lower land values.
2) Florida's Turnpike (Turnpike) was the next major roadway constructed
through Ocoee. This 309 mile long freeway was extended through West
Orange County in 1964, just south of the downtown, and provided Ocoee
with excellent access to Central Florida north and south.
City of Ocoee
Evaluation and Appraisal Report
3) Decades later, in late 1990, the connection between Ocoee and Orlando
was further secured when the western extension of SR 408 was
completed. The tollway, also known as the East-West Expressway,
connects the Turnpike south of SR 50, through downtown Orlando, and to
the University of Central Florida in the east.
4) The final piece of the Ocoee connectivity story is SR 429, also known as
the Western Expressway. Completed in 2000, this tollway connects US
441 in the north, to Interstate-4 (1-4), just south of Walt Disney World.
City of Ocoee
Evaluation and Appraisal Report
C. Public Participation Process
The City of Ocoee held two community meetings to discuss community issues that were
then used to inform preparation of EAR issues. The first meeting was held on October
14, 2008, as a workshop with members of the Local Planning Agency/Planning and
Zoning Commission. The second meeting was held on October 22,2008, and was well-
participated. This meeting further reinforced the list of issues from which the EAR issues
were crafted. Additionally, an internal meeting was held as part of a strategic planning
session with City Department Heads and Commissioners on March 2, 2009. Again,
issues relating to growth management confirmed and supported the growing list of
comments. These comments are summarized below.
Plannin{l & Zonin{l Workshop. Citizens Workshop comments
1) Promote more Commercial, /ndustrial and Retail in the City (Strategic Location)
2) Re/ationships between Bluford/50, McKey, Architecture; City Goals
3) Identify City Centers
4) Identify Redevelopment context that does not allow older areas to be out-competed
5) Consider Transportation in design of City Centers
6) Gateway Identification as an important component
7) Downtowns (City Centers)
. Mixture of uses for dining, entertainment
. Pedestrian friendly
. Trails master planning
. Securing trails via development review
8) Interconnected Trail System connecting parks with other public amenities
9) Traffic
. Connectivity
. Network
. Signalization
(Pa/m Drive)
10) Enclaves
11) Aquifer Recharge Protection
. Wekiva P&P Act inclusion
City of Ocoee
Evaluation and Appraisal Report
12) Identify Utility Service expansion
13) Septic reduction strategy
14) Recreation
. More athletic fields
. Community centers
. Parks (more active facilities
. Parking
15) Securing park facilities via the development process using a master plan
16) Affordable Senior Housing (ALF's), etc.
17) Integration of Alternative Housing types
. Section 8, Hope VI, other programs
18) Increase in Reclaimed system & provision
19) Alternative Transportation
. Future Commuter Rail
. Intermediary Lynx routes
. Multi-modal plan
20) Education
. Satellite campuses
21) Workforce education
22) Expand efforts to attract educational institution
23) Expanding medical campus
24) Cemetery - cleanup; location issues
25) Future character
. Archictural standards
. Character typology
. Pattern books?
City of Ocoee
Evaluation and Appraisal Report
26) Design standards
. General description of character
27) Identification of market needs and supporting uses - hotels, etc.
28) Address sprawl
. Auction
. Citywide
29) Promote new Industrial & existing opportunities (Lt. Ind.)
30) Tree Protection - mention more specifically in the Comprehensive Plan
31) Identify re-development incentives
. Code
. Fees
. Evaluate other places
32) Liaisons for key planning areas for issues
Community MeetinG Comments
Growth Management Survey
. Is Government TV effective?
. TALK IS CHEAP
"Oh-Coy" or "Oh-KOH-ee" ?
City needs a park
. Where old Main Street/Bluford is located
. What are the returns on City-owned property?
. Invest/Expand Medical campus
. City survey results
West Oaks Mall
. What was the vision before and while built-how do we have other successful shopping
centers?
. Proper market analysis and marketing
. City should be more pro-active
. Lack of community spirit-leadership
City of Ocoee
Evaluation and Appraisal Report
. Rules & regulations
Ocoee has no downtown-a place to shop, play, go to dinner-to generate economic
development
. Why haven't we implemented Master Plans?
. Pool investments-heated pool
. Investment in redevelopment plans-target dates
. Empty lots (Middle School, Post Office, Silver Star to Lakewood
Code Enforcement (Active)
. Setting a strategy
. Why do we have a Pioneer Key 1 & 2? What Community Development programs can
assist?
. Affordable housing that works
. Need lifestyle centers with shopping, dining
. Why have we allowed business to escape?
. City should take care of facilities
. Why is the Cafe "the downtown?"
. Colony Plaza-why?
. Starke Lake-why do we allow septic?
. We need to redevelop/implement the Lakefront Redevelopment Plan
. We need to realize that we are a city that is growing (33k) not small (5000)
. We need to invest in infrastructure
. Resurfacing projects need to be planned for financially
. The CIP should be based on need
City Garbage Trucks
. Leak hydraulic fluid and stain the roadways
. Street maintenance should be reevaluated
. City should take care of its own properties (Montgomery)
. Set target dates-why are parks closed at times?
. City needs an adequate place for community events (like Tanner Hall)
Why didn't we get it right with the Ison Center?
We need the qualities of great urban downtowns (Boston, Nova Scotia)
. Walkability
. Variety of uses
. Encouraging cultural and civic opportunities
. No more suburban strip development
. Downtown Ocoee has potential
. Enclaves need to be annexed
City of Ocoee
Evaluation and Appraisal Report
Transportation
. Trails-require through Development Review
. Need a spine/network of trails
. Parallel path to 50
. Shoal Creek walking path
. Lake Bennet area & Kane's Furniture area
. Connectivity to mall, parks, schools
. Land Development Code requirements for proposed walkways
. Recreation, Civic, Culture-taking care of City Property--investing in maintenance
. Increase funding for Public Works
. Housing-range of economic categories
. Programs for Pioneer Key 1 and 2
. Silver Star/Ocoee Apopka
. Identify key target redevelopment areas
. City should exercise its power of condemnation
. City should be results-oriented
. City should make use of its usable land
. Shopping center behind Post Office should be redeveloped
. Focus uses appropriately
. Parallel roadways to 50
. Story Road/Geneva Street should be extended
. Naming of roads should be coordinated
. Community design principles
. Box retail over parking
. Need to address City goals holistically, not North of 50 vs. South of 50
. Re-evaluate City's architectural interpretation
. More sports fields and venues
Parks
. Need parks for older kids
. Winter Park Village
. More City Hall and re-develop Starke Lake as a cultural attraction (Starke Hall)
. Attract larger, higher quality employment
. Maintain quaint downtown centers
. Tree preservation
The evaluation of the City's Comprehensive Plan began on March 5, 2009, with an EAR
scoping meeting. An advertisement was published in the West Orange Times
newspaper, and notices were posted at City Hall inviting the public to attend. The
meeting consisted of a presentation by the City's Consultant and discussion with city
staff and citizens. After discussing the issues with the department heads, citizens and
adjacent jurisdictions, a Letter of Understanding (LOU) including the scope of work and
a list of issues that will be addressed in the EAR was submitted to DCA on May 5, 2009.
On September 14, 2010 the City's Planning Advisory Board (Local Planning Agency)
held an advertised public hearing and recommended to the City Council that the EAR
City of Ocoee
Evaluation and Appraisal Report
be transmitted to the Department of Community Affairs. On September 21, 2010 the
City Commission held a public hearing and approved the EAR for adoption.
D. NW Sector Study
In 2006, the City of Ocoee and a retained consulting team prepared a study of the
Northwest area of the City known as the NW Sector Study. This study served as an
important analysis of growth potential within the area and created land use buildout
scenarios that represented a low, medium, and high density/intensity form of land use
patterns. The study also evaluated capital improvements necessary to fulfill each
scenario, in addition to preparation of a study of the market conditions at the time. This
study was formally accepted by the City Commission, but no land use amendments
were sought at the time due to financial feasibility concerns of infrastructure. This
study, provided as an appendix creates a framework for evaluation of the Northwest
area of the City as the City moves ahead in preparation of the EAR-based amendments.
The City will be again evaluating the proposed buildout scenarios and will consider them
in context of addressing several EAR issues of community concern, but will take great
care in evaluating the efficacy of a long-term horizon versus a traditional one.
City of Ocoee
Evaluation and Appraisal Report
II. ANALYSIS OF ISSUES
A. Changes in Population
Since 1960, the City of Ocoee has grown from a population of 2,500 to over
38,000. These population data track with the overall growth of West Orange
County as more transportation connections were made to Metropolitan Orlando
and the ensuing growth of new residential development.
40,000
35,000
30.000
c:: 25,000
0
..
"' 20,000
:;
Q.
0 15,000
.....
10,000
5.000
0
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1960 1965 1970 1975 1980 1985 1990 1995 2000 2005 2010
Year
This population chart shows the increase in population as
several major roadways were constructed. Source: US Census
Bureau
The City's original Comprehensive Plan projections projected a growth pattern
that is similar to what has actually occurred (Table1). The current population
estimate for the City of Ocoee for 2010 is 38,788 based on unverified Census
tract information for the Ocoee zip code of 34761, which is +/- 10% higher than
the original projections, but is close to BEBR projection data (Table 2).
Table 2 Existing Comprehensive Plan Projections
Year Population
1990 14,850
1995 18,114
2000 22,357
2005 27,782
2010 34,835
City of Ocoee
Evaluation and Appraisal Report
Table 3 BEBR Population Projections
BEBR Pop
60,000 0
55,000.0
50,000 0
45,0000
40,0000
35,000.0
30,000,0
2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024
However, the existing Comprehensive Plan's Revised Methodology provided a
much more aggressive set of projections to the year 2020 within the Orange
County Joint Planning Agreement (JPA) area, and was based on predicted
growth rates that have not been sustained over the period from 2000 to 2010.
The JPA has been amended for pending annexations 12 times since 2002,
expanding the area, yet the population within the JPA is considerably lower than
the existing projections
Table 4 Revised Methodology Population Projects for the JPA
Year Total Population
1997 35,171
2005 55,572
2010 63,745
2020 76,899
Population growth in the City of Ocoee has exceeded growth rates in the State of
Florida and Orange County. Table 5 compares population growth in the City and
County. Between 2000 and 2007, the City grew by approximately 90 percent,
from 1990-2000 compared to 57 percent in the County. Much of this disparity can
be attributed to the City's location in the western portion of the County, where
rapid growth occurred later than in the areas immediately surrounding the City of
Orlando.
Table 5 Historic Population (U.S. Census)
Population Percent Chanae
1980 1990 2000 2010 1980 1990 to 2000 to
to 2000 2010
1990
Ocoee 7,803 12,778 24,391 34,187 <63.75 <90.88 <40.16
% % %
Orange 471,016 677,491 1 ,066, 11 3 ?? <43.83 <57.36 ??
Cou ntv % %
City of Ocoee
Evaluation and Appraisal Report
The City has not prepared a new set of projections specific to the
Comprehensive Plan since the original 1990 Comprehensive Plan. The EAR
based amendments should include an updated projection series that will be
based on more realistic growth rates predicted by sources such as BEBR and
bureaus of population and economic research
City of Ocoee
Evaluation and Appraisal Report
B. Changes in Land Area
Based on the adopted Comprehensive Plan the total area of the City of Ocoee
was 8,669 acres in 2002 (excluding rights-of-way). Due to the annexation of
approximately 288.75 acres of land, the total area of the City increased to its
current size of 19,596.35 acres.
Map 1, below, depicts the current city boundaries and identifies the location of
properties annexed from 2002 to 2010. Table 6 lists the acreage annexed into
the City from 2002 to September 2010.
Map 1: Annexation Map
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Legend
Source:
City of Ococe
Annexations Since October 1, 2002
Annt,ahonsS:nC1l'00;Iott,I.2002!
_Jo.~tPfannon'iiA.t.So.>ndlry
_CI....llm<lSBQu:l.'Y
Ouln:leofJPA
Uf\:IIci:t-porateClOrt,,;,COJI11Y
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... We'tO'a'l'iieT~a,1
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;=. Sl.leRO\I:l
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City of Ocoee
Evaluation and Appraisal Report
Table 6: Annexations by City, Year and Acreage 2002 - 2010
Ordiance
# Location Description Adoption Date
2002-12 ANNEXING APPROXIMATELY 6.25 ACRES LOCATED April 16, 2002
WEST OF THE WESTERN EXPRESSWAY AND NORTH
OF FULLERS CROSS ROAD,
2002-15 ANNEXING APPROXIMATELY 4.92 ACRES LOCATED ON June 18, 2002
MAGUIRE ROAD, APPROXIMATELY 1 BLOCK NORTH OF
THE INTERSECTION OF ROBERSON ROAD AND
MAGUIRE ROAD
2002-16 ANNEXING APPROXIMATELY 9.20 ACRES LOCATED ON June 18, 2002
THE NORTH SIDE OF FULLERS CROSS ROAD
APPROXIMATEL Y 700 FEET EAST OF THE
INTERSECTION OF OCOEE-APOPKA ROAD AND
FULLERS CROSS ROAD INTERSECTION;
2003-02 ANNEXING APPROXIMATELY 18.69 ACRES LOCATED January 21, 2003
APPROXIMATEL Y 650 FEET WEST OF THE
INTERSECTION OF THE BELWAY (STATE ROAD 429)
AND FULLERS CROSS ROAD INTERSECTION
2003-03 ANNEXING APPROXIMATELY 1.78 ACRES LOCATED ON January 7, 2003
THE NORTHSIDE OF WST SILVER STAR
APPROXIMATEL Y 350 FEET EAST OF THE
INTERSECTION OF WEST SILVER STAR ROAD AND
OCOEE-APOPKA ROAD;
2003-11 ANNEXING APPROXIMATELY 9.116 ACRES LOCATED March 18, 2003
APPROXIMATEL Y 331 FEET EAST OF THE NORTHEAST
CORNER OF THE INTERSECTION OF STATE ROAD 50
BLACKWOOD AVENUE,
2003-13 ANNEXING APPROXIMATELY 67.65 ACRES LOCATED AT March 18,2003
THE NORTHEAST CORNER OF THE INTERSECTION OF
STATE ROAD 50 AND BLACKWOOD AVENUE,
2003-17 ANNEXING APPROXIMATELY 11.76 ACRES LOCATED August5,2003
APPROXIMATEL Y 150 FEET SOUTH OF 17TH AVENUE
ON THE WEST SIDE OF OCOEE-CLARCONA ROAD
2003-26 APPROXIMATEL Y 3.52 ACRES LOCATED September 2,
APPROXIMATEL Y 1,400 FEET NORTH OF WURST ROAD 2003
ON THE WAST SIDE OF ADAIR STREET
2003-40 ANNEXING APPROXIMATELY 5.494 ACRES LOCATED November 4,
NORTH OF COLONIAL DRIVE/STATE ROAD 50 2003
APPROXIMATEL Y 1 ,7 50 FEET WEST OF THE
INTERSECTION OF CLARKE ROAD AND COLONIAL
DRIVE
2003-44 ANNEXING APPROXIMATELY 1.012 ACRES LOCATED November 18,
SOUTH OF THE FOREST RIDGE SUBDIVISION AT THE 2003
SOUTHERN END OF BASKING RIDGE COURT
2003-46 ANNEXING APPROXIMATELY .67 ACRES LOCATED November 18,
APPROXIMATEL Y 550 FEET NORTH OF THE 2003
INTERSECTION OF MAGUIRE ROAD AND ROBERSON
ROAD ON THE WEST SIDE OF MAGUIRE ROAD
2003-48 ANNEXING APPROXIMATELY 5.3 ACRES LOCATED November 18,
NORTH OF SILVER STAR ROAD ON THE WEST SIDE OF 2003
OCOEE-APOPKA ROAD
City of Ocoee
Evaluation and Appraisal Report
2003-51 ANNEXING APPROXIMATELY 4.57 ACRES LOCATED November 18,
NORTH OF SILVER STAR ROAD ON THE WEST SIDE OF 2003
OCOEE-APOPKA ROAD
2003-54 ANNEXING APPROXIMATELY 1.13 ACRES LOCATED November 18,
NORTH OF SILVER STAR ROAD ON THE WEST SIDE OF 2003
OCOEE-APOPKA ROAD
2003-57 ANNEXING APPROXIMATELY 9.4 ACRES LOCATED November 18,
NORTH OF SILVER STAR ROAD ON THE WEST SIDE OF 2003
OCOEE-APOPKA ROAD
2004-01 ANNEXING APPROXIMATELY 29.25 ACRES LOCATED February 3, 2004
APPROXIMATEL Y 2,000 FEET WEST OF THE POINT
WHERE FULLERS CROSS ROAD GOES UNDER THE
WESTERN EXPRESSWAY (STATE ROAD 429)
2004-002 ANNEXING APPROXIMATELY 33.48 ACRES LOCATED AT
THE SOUTHEAST CORNER OF THE MCCORMICK ROAD
AND INGRAM ROAD INTERSECTION PURSUANT TO THE
APPLICATION SUBMITTED BY THE PROPERTY
OWNERS; FINDING SAID ANNEXATION TO BE
CONSISTENT WITH THE OCOEE COMPREHENSIVE
PLAN, THE OCOEE CITY CODE, AND THE JOINT
PLANNING AREA AGREEMENT; PROVIDING FOR AND
AUTHORIZING THE UPDATING OF OFFICIAL CITY MAPS;
PROVIDING DIRECTION TO THE CITY CLERK;
PROVIDING FOR SEVERABILITY; REPEALING
INCONSISTENT ORDIANCES; PROVIDING FOR AN
EFFECTIVE DATE.
2004-04 ANNEXING APPROXIMATELY 4.79 ACRES LOCATED April 6, 2004
SOUTH OF THE SOUTHEAST CORNER OF THE
MCCORMICK ROAD AND INGRAM ROAD INTERSECTION
2004-06 ANNEXING APPROXIMATELY 0.666 ACRES LOCATED }4- April 6, 2004
MILE NORTH OF THE INTERSECTION OF MAGUIRE
ROAD AND ROBERSON ROAD ON THE WEST SIDE OF
MAGUIRE ROAD
2004-11 ANNEXING APPROXIMATELY 1.01 ACRES LOCATED June 15, 2004
SOUTHWEST OF BASKING RIDGE COURT AND
IMMEDIATELY WEST OF OCOEE'S OLD AFRICAN-
AMERICAN CEMETERY
2004-13 ANNEXING APPROXIMATELY 5.08 ACRES LOCATED AT June 15, 2004
THE SOUTHEAST CORNER OF THE OCOEE APOPKA
ROAD AND FULLER'S CROSS ROAD INTERSECTION
2005-001 ANNEXING APPROXIMATELY 6.92 ACRES LOCATED March 15, 2005
SOUTHWEST OF THE SILVER STAR ROAD AND OLD
SILVER STAR ROAD INTERSECTION AND EAST OF
JOHIO SHORES ROAD
2005-008 ANNEXING APPROXIMATELY 9.866 ACRES LOCATED June 7,2005
SOUTH OF MCCORMICK ROAD AND WEST OF INGRAM
ROAD
2006-005 ANNEXING APPROXIMATELY 15.80 ACRES LOCATED February 21, 2006
WEST OF THE INTERSECTION OF CLARCONA-OCOEE
ROAD (NORTH LAKEWOOD AVENUE) AND WURST
ROAD
2006-018 ANNEXING APPROXIMATELY 101.66 ACRES LOCATED November 7,
NORTH AND WEST OF CLARCONA-OCOEE ROAD, AND 2006
TO THE EAST OF FOREST LAKE GOLF COURSE
City of Ocoee
Evaluation and Appraisal Report
2006-020 ANNEXING APPROXIMATELY 2.355 ACRES LOCATED December 19,
575 FEET WEST OF THE STATE ROAD 50 AND STATE 2006
ROAD 439 INTERSECTION
2006-022 ANNEXING APPROXIMATELY 33.176 ACRES LOCATED December 19,
AT THE NORTHWEST CORNER OF THE INTERSECTION 2006
OF MAINE STREET AND CHICAGO AVENUE, SOUTH OF
TIGER MINOR PARK AND EAST OF RICHMOND AVENUE
2007 -004 ANNEXING APPROXIMA TEL Y 0.8 ACRES LOCATED April 17, 2007
WEST OF AND ADJACENT TO ADAIR STREET AND
APPROXIMATEL Y 155 FEET NORTH OF VIGNETTI PARK
2007 -008 ANNEXING APPROXIMATELY 0.85 ACRES LOCATED May 15, 2007
SOUTH OF AND ADJACENT TO WHITE ROAD AND
APPROXIMATEL Y 1,300 FEET WEST OF CLARKE ROAD
2007-010 ANNEXING APPROXIMATELY 37.12 ACRES LOCATED May 15, 2007
EAST OF AND ADJACENT, IN PART, TO OCOEE APOPKA
ROAD AND APPROXIMATELY 2,500 FEET SOUTH OF
FULLERS CROSS ROAD
2007-012 ANNEXING APPROXIMATELY 1.95 ACRES LOCATED May 15, 2007
NORTH OF AND ADJACENT TO COLONIAL DRIVE (S.R.
50) AND APPROXIMATELY 1,280 FEET EAST OF
BLACKWOOD AVENUE
2007-014 ANNEXING APPROXIMATELY 2.249 ACRES LOCATED May 15, 2007
APPROXIMATELY 586 FEET SOUTH OF STATE ROAD 50,
AND TO THE EAST AND NORTH OF THE FLORIDA
TURNPIKE
2007 -016 ANNEXING APPROXIMATELY 4.53 ACRES LOCATED July 17, 2007
APPROXIMATEL Y 200 FEET WEST OF OCOEE APOPKA
ROAD AND APPROXIMATELY 500 FEET NORTH OF THE
INTERSECTION OF PALM DRIVE AND SAND DOLLAR
KEY DRIVE
2007-019 ANNEXING APPROXIMATELY 18.69 ACRES LOCATED August7,2007
EAST OF AND ADJACENT TO LAUREN BETH AVENUE
AND APPROXIMATELY 600 FEET SOUTH OF CLARCONA
OCOEE ROAD
2007-021 ANNEXING APPROXIMATELY 0.60 ACRES LOCATED August 7, 2007
SOUTH OF AND ADJACENT TO CLARCONA OCOEE
ROAD AND APPROXIMATEL Y 150 FEET WEST OF
ANGOLA STREET;
2008-001 ANNEXING APPROXIMATELY 9.46 ACRES LOCATED March 18, 2008
NORTH OF AND ADJACENT TO GENEVA STREET AND
APPROXIMATEL Y 2,000 FEET EAST OF BLUFORD
AVENUE;,
2008-002 ANNEXING APPROXIMATELY 8.76 ACRES LOCATED March 18, 2008
EAST OF AND ADJACENT TO TOMYN BOULEVARD AND
APPROXIMATELY 255 FEET SOUTH OF PATRIOTS
POINT DRIVE;
2008-005 ANNEXING APPROXIMATELY 26.65 ACRES LOCATED April 1, 2008
WEST OF AND ADJACENT TO MAGUIRE ROAD AND
SOUTH OF AND ADJACENT TO ROBERSON ROAD AT
THE SOUTHWEST QUADRANT OF THE INTERSECTION
OF MAGUIRE ROAD AND ROBERSON ROAD;
2008-007 ANNEXING APPROXIMATELY 0.65 ACRES LOCATED June 17, 2008
NORTH OF AND ADJACENT TO CENTURY OAK DRIVE
AND APPROXIMATEL Y % MILE WEST OF THE
INTERSECTION OF BRYCE DRIVE AND CLARKE ROAD;
City of Ocoee
Evaluation and Appraisal Report
2009-004 ANNEXING APPROXIMATELY 1.84 ACRES LOCATED March 17,2009
EAST OF AND ADJACENT TO OCOEE-APOPKA ROAD
AND APPROXIMATELY 1790 FEET NORTH OF SILVER
STAR
2009-006 ANNEXING APPROXIMATELY 1.24 ACRES LOCATED April 21, 2009
NORTH SIDE OF SILVER STAR ROAD AND SOUTH OF
REWIS STREET, % MILE EAST, NORTHEAST OF THE
INTERSECTION OF BLUFORD AVENUE AND SILVER
STAR ROAD;
2009-018 ANNEXATION APPROXIMATELY 80.68 ACRES, MORE OR July 21,2009
LESS, GENERALLY LOCATED ALONG WHITE ROAD ONE
QUARTER MILE EAST OF THE INTERSECTION OF
WHITE ROAD AND CLARKE ROAD AND COMPRISING
ALL CURRENTL Y UNINCORPORATED PROPERTY IN
THE ROSE HILL SUBDIVISION PHASES 2 AND 3,
2009-022 ANNEXING APPROXIMATELY 1.24 ACRES, LOCATED ON October 20, 2009
THE WEST SIDE OF 1ST STREET, APPROXIMATELY 445
FEET SOUTH OF THE INTERSECTION OF 1ST STREET
AND SILVER STAR ROAD;
2009-024 ANNEXING APPROXIMATELY 0.30 ACRES, LOCATED ON October 20, 2009
THE WEST SIDE OF 1ST STREET, APPROXIMATELY 585
FEET SOUTH OF THE INTERSECTION OF 1ST STREET
AND SILVER STAR ROAD;
2010-005 ANNEXING APPROXIMATELY 1.34 ACRES LOCATED ON May 18, 2010
THE WEST SIDE OF ADAIR STREET, BETWEEN 2ND
AVENUE AND 3RD AVENUE
2010-010 ANNEXING APPROXIMATELY 3.68 ACRES LOCATED August3,2010
SOUTH OF AND ADJACENT TO STATE ROAD 50 AND
WEST OF STATE ROAD 408
2010-011 ANNEXING APPROXIMATELY 21.14 ACRES LOCATED August 3, 2010
NORTH OF AND ADJACENT TO OLD WINTER GARDEN
ROAD AND WEST OF AND ADJACENT TO OHIO AVENUE
Since 2003, some of the land annexed into the city has been in the form of
"enclaves" - pockets of unincorporated property surrounded by incorporated
areas. Current Florida Law (Section 171.046, Florida Statutes) provides for the
elimination of existing enclaves through interlocal agreement and municipal
ordinance. The annexation of these enclaves into the city has allowed for more
efficient planning, growth management and service delivery and has had little
impact on City services, while providing for a more compact urban form.
Voluntary annexation of land from the outskirts of the city limits has also
occurred, primarily along the western, northern, and eastern boundaries. Since
1994, annexation have occurred under the auspices of an interlocal agreement
between the City and Orange County that addresses annexations within the Joint
Planning Area (JPA) established as a part of the interlocal agreement and
described below. The City of Ocoee's comprehensive plan addresses the
annexation of unincorporated land and established various objectives and
policies to annex properties that would enhance the economic base of the City,
including nonresidential, apartments/multi-family dwellings, utility service fringe
City of Ocoee
Evaluation and Appraisal Report
area suitable for development, existing subdivisions and vacant land being
developed and having high value. The City has given priority to annexing land
areas that contributed toward the economic base and have not caused negative
impacts on infrastructure. The roads impacted by the annexations are primarily
under the jurisdiction of the County or State so local roadway impacts have been
small as well.
Joint Planning Area (JPA)
In 1994, the City of Ocoee and Orange County executed an Interlocal
Agreement. The agreement provides for shared regulations between the City and
Orange County relating to issues such as density and annexations. The
agreement also set up the Joint Planning Area (JPA) shown on Map 2. Any
change of zoning or land use in this area requires notification of the adjacent
jurisdiction if the property undergoing the change abuts each jurisdiction. A Joint
Land Use Plan was formulated along with the Interlocal Settlement Agreement to
provide uniform future land uses in the JPA. The agreement also focuses on
public services such as the provision of urban services to areas within the JPA.
Because of the joint land use plan and other elements of the interlocal agreement
that address provision of infrastructure, the eventual annexation of all the land
within the JPA to the City of Ocoee will be planned for and should cause no
negative impacts on the City or County.
City of Ocoee
Evaluation and Appraisal Report
Map 2 JPA Future Land Use Map
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'iC8',EA51.VIl'Sl EJIS''i
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Legend
Source:
City of Ocoee
Future Land Use
Future land Use Class,ficabon"
Low Density Residential
_ I\.1edium DenSity Residential
_ Hl9h Density Residential
_ Professional Otfces and Services
_ CommerCial
_lighllndustrial
_ Hea'lY Industrial
_ Conservalion,'F1oodolains
Recreation and Open Space
_ Public Facllities!!nstLtullonal
. " "Orange Count)'
/ low DenSlt,. Resldent,,;!!1
"//. Orange County Industrial
_ JOInt Planning Area Boundary
- CIty Limlls Boudary
OutSide of JPA
Unincorporated Orange Counly
Lake J Po~c
We!>1 Orange Tra~
-.Radline
_ _" Expressway
C) State Road
o Counly Road
City of Ocoee
Evaluation and Appraisal Report
c. Vacant Land for Future Development
Of all the existing vacant land uses in the City of Ocoee, lands designated Low
Density Residential (LDR) makes up the largest percentage. However, the
vacant land is not necessarily located within a Future Land Use classification that
is appropriate to meet market demand for residential and commercial
development. The vacant lands are also not necessarily strategically located to
maximize the use of existing facilities. The City needs to further analyze the
vacant land characteristics and recommend land use amendments if necessary
during the EAR-based amendment process.
Table 7 Vacant Land by Existing Future Land Use
% of
ELU Vacant bv FLU Class Area (Sq ft) Area (ac) Total
LDR 37462235.15 859.98 43.48
CONS 20971989.64 481.43 24.34
COMM 11630434.01 266.99 13.50
LI 7898873.09 181.33 9.17
HDR 3517291.51 80.74 4.08
Oranqe County Industrial 1600235.15 36.73 1.86
HI 1559308.07 35.80 1.81
MDR 584872.41 13.43 0.68
INST 446492.75 10.25 0.52
PS 345767.36 7.94 0.40
REC 146592.43 3.37 0.17
UNC 3830.66 0.09 0.00
Totals 86167922.22 1978.07 100.00
Map 5, on page 10, shows all vacant land throughout the City of Apopka. Vacant
land designated as Commercial in the City's Future Land Use Map is mainly
located along major transportation corridors; US 436, US 441 and Rock Springs
Road. Most of the vacant commercial sites are small and scattered throughout
the City. These sites generally abut existing commercial and industrial uses.
Vacant land designated for future industrial use is located in the west and south
sides of the City. Map 6, on page 11, shows vacant residential land, which is also
scattered throughout the City. This residential vacant land generally abuts
existing vacant residential areas.
City of Ocoee
Evaluation and Appraisal Report
D. Level of Service (LOS) Analysis and Financial Feasibility
Section 163.3191 (2)(c), Florida Statutes, requires the EAR to evaluate the city's
ability to achieve and maintain the adopted level of service (LOS) standards for
all public facilities. The EAR also presents the financial feasibility of the planned
capital investments that will maintain the LOS performance of public facilities as
they seek to adequately accommodate changing demand.
Adopted LOS Standards
The City of Ocoee adopted LOS standards for public facilities and services
related to:
. Potable Water Supply
. Sanitary Sewer Treatment
. Solid Waste Management
. Recreation and Open Space
. Drainage
. Transportation
. Public Schools
Table 8, below, identifies the adopted LOS standard and the present
performance of each listed public facility and service category, and compares the
existing performance to the standard to see if it is being met under current
conditions.
Table 8. Adopted LOS and Actual Performance Compared.
Facility or
Service
Potable Water
Sup I
Sanitary Sewer
Treatment
Solid Waste
Mana ement
Recreation &
o en Space
Current
Performance 1
296 gallons per
da er ERU3
267 gallons per
da er ERU4
1.98 Ibs. per
ca ita per da 5
6.45 acres per
1,000 residents6
Adopted LOS
300 ~allons per day per
ERU
270 gallons per day per ERU
6.0 Ibs per capita per day
4.0 acres per 1,000 resident
o ulation
Is LOS
Achieved?
Yes
Yes
Yes
Yes
I Population data is derived from reports by the Florida Bureau of Business and Econom ic Development.
The latest available population estimate is 33,659 (2008).
2 ERU is Equivalent Residential Unit, which is the demand imposed by a typical single-family residence.
3 Based on average household occupancy of2.5 persons.
4 Based on an average of 6,000 gallons per ERU.
5 Based on total collected waste of 12,157.93 tons in 2008.
6 Based on total acreage of2 I 7.23.
City of Ocoee
Evaluation and Appraisal Report
Facility or Current Is LOS
Service Adopted LOS Performance 1 Achieved?
Drainage Retain 100-year, 24-hour Same Yes
storm event; ensure lowest
floor elevation of all
habitable/insurable structures
is above 1 OO-vear flood level
Transportation LOS 8, D, or E, depending All roadways Yes, except
on facility meet LOS SR 50
standard except
SR 50
Public Schools Elementary = 110% of See data Yes
adjusted FISH? reported
K-8 Centers = 110% of elsewhere in
adjusted FISH EAR
Middle = 100% of adjusted
FISH
High = 100% of adjusted
FISH
Existing LOS Deficiency in Transportation
SR 50 is currently operating below the adopted LOS standards for some peak
hours of the day. The Florida Department of Transportation, which has
jurisdiction over this highway, is currently designing and acquiring rights of way
for widening this facility through Ocoee. Projects to widen the highway to the
west and east of Ocoee are currently underway. All planned SR 50 projects in
the area will increase the number of lanes from four to six. However, as the main
LOS performance issues relate to intersections, not through travel segments,
these projects will not eliminate all sources of the existing traffic congestion. The
City is pursuing policies to the north and south of SR 50 that are intended to
reduce the amount of local traffic using SR 50 as adjacent developable land is
built out. Long term, these. policies should reduce the number of side-street
turning movements during peak hours and help alleviate the existing traffic
congestion. In addition, accommodating the SR 50 widening project will exert
financial loads on the City's utility systems, for which water and sewer mains and
customer services must be relocated prior to highway construction commencing
or in concert with the construction projects.
7 FISH is the Florida Inventory of School Housing, which is a measure of the number of students that can
be accommodated by a school facility based on the School Requirements for Educational Facilities.
City of Ocoee
Evaluation and Appraisal Report
Review of Capital Improvements
The annual review and adoption of a five-year Capital Improvement Plan is a
major part of the City's efforts to meet adopted LOS standards. The Plan is
augmented by leveraged private investments so that improvements are focused
on the locations of increasing demand. Some of the major recent capital
investments are:
. Major expansion of the reclaimed water system through retrofit projects in
existing residential areas and developer construction of reclaimed water
distribution systems in new subdivisions.
. Expansion and renewal of major sanitary sewer collection and transport
facilities in areas with growing demand.
. Taking advantage of private investments to upsize water and sanitary
sewer mains.
. Adopting and implementing numerous projects identified In the Wekiva
River Basin program.
. Leveraging the recently formed Community Redevelopment Area to
initiate investments coordinated with commercial development activities.
. Working with the Florida DOT and major local traffic demand centers to
improve the system capacity of the SR 50 corridor.
. In concert with Orange County and private development interests,
realigning and widening West Road, and widening Old Winter Garden
Road and Roberson Road.
. Acquiring and developing park and open space lands, including
reconstruction and expansion of several existing facilities.
. Developing a lake-front community activity and open space center in the
historical downtown area.
. Working with the Orange County Public Schools to ensure adequate
infrastructure support for new school construction.
Financial Feasibility
The City has a Fiscal Year 2008/09 budget with revenues of $59, 311,746 and
expenditures totaling $57,353,314, which allowed the City to grow its reserves by
almost $2 million. Table 9 shows that total revenues for the City of Ocoee
exceeded expenditures in each of the last five fiscal years.
City of Ocoee
Evaluation and Appraisal Report
Table 9. Total Revenues and Expenditures, Fiscal Years 2004/05 - 2008/09.8
Type
2004/05
2005/06
2006/07
2007/08
2008/09
Revenues $55,169,434 $64,003,766 $66,289,997 $61,643,791 $59,311,746
Expenditures 48,447,981 55,215,006 55,192,991 56,644,524 57,353,314
Increase
(Decrease) in
Fund Balance $6,721,453 $8,788,760 $11,097,006 $4,999,267 $1,958,432
Table 10 presents a detailed summary of revenues and expenditures for FY
2008/09 showing the various revenue sources and expenditure categories for
that fiscal year.
Table 10. Summary of Revenues and Expenditures, FY 2008/09.9
Revenues and FinancinQ Sources
Beginning Fund Balance
Reserves
Ad Valorem Taxes
Sale, Use, and Fuel Taxes
Franchise Fees
Impact Fees
Utility and Service Fees
G ra nts
Revenue Sharing
Fines and Forfeitures
Interest and Other Earnings
State Pension Contributions
Contributions from Enterprise Operations
Other Revenues/Sources
Interfund Transfers
Total Revenues and Financing Sources
Amount in Dollars
6,560,200
10,856,015
7,830,854
2,576,792
597,744
16,726,264
1,160,508
3,680,852
326,819
2,691,879
3,270,393
3,757,870
2,138,551
3,697,205
65.871.946
Expenditures and Expenses Amount in Dollars
General/Legislative, Executive and Admin 4,159,609
Comprehensive Planning 636,397
Pension Expense 1,801,278
Other General Governmental Services 5,991,012
Public Safety 14,756,156
S Source: City of Ocoee Finance Depmtment, derived from City accounting data over the five-year period.
9 Source: City of Ocoee Finance Department, derived from FY 2008/09 accounting data.
City of Ocoee
Evaluation and Appraisal Report
Ending Fund Balance and Reserves
14,724,343
4,270,473
3,558,965
7,455,081
57.353.314
$8,518,632
Physical Environment
Transportation
Culture and Recreation
Interfund Transfers
Total Expenditures and Expenses
Table 11 presents the adopted five-year Capital Improvement Plan for the City of
Ocoee showing the various funding sources for these projects.
Table 11. Five-year Capita/Improvement Program, FY 2008/09 - 2012/13.10
Category 2008/09 2009/1011 2010/11 2011/12 2012/13
Potable Water $330,000 $700,000 $267,575 $332,800 $205,504
Reclaimed $636,800 $585,000 $0 $920,400 $575,411
Water
Sanitary Sewer $502,000 $1,403,300 $329,700 $67,600 $70,304
Recreation & $632,500 $151,000 $40,000 $0 $0
Open Space
Drainage $710,000 $1,216,000 $1,105,000 $430,000 $0
Transportation $1,289,000 $2,019,500 $410,000 $0 $0
Total CIP $4,100,300 $6,074,800 $2,152,275 $1,750,800 $851,219
10 Source: City of Ocoee Finance Department, derived from City accounting data and the proposed FY
20 I 0/11 Budget. Reclaimed Water projects contribute toward meeting the goals and objectives of both the
Potable Water and Sanitary Sewer sub-elements. As the City provides only residential solid waste
collection services, there are no CIP expenditures for that sub-element. Expenditures for the Public
Schools CIP are made by the Orange County Public Schools and are not included here.
II Data for this fiscal year does not include $1.72 million allocated for potable water, sanitary sewer,
drainage, and transportation improvements to the Pioneer Key I Mobile Home Park, of which $1.2 million
are from Orange County CDBG funds, as this project has been delayed at the request of Orange County.
This project involves reconstruction of existing facilities and does not impact the City's ability to meet its
LOS standards.
F. School Planning Coordination
This chapter of the EAR analyzes School Planning Coordination, which IS
applicable to the City of Ocoee per Florida Statutes.
Statement of Required Special Topic
In 2005, the State of Florida passed Senate Bill 360, which included the
requirement for all non-exempt local governments in the State to include school
concurrency provisions in their respective Comprehensive Plan. School
Concurrency requires that local governments enter into an Interlocal agreement
with the applicable school board, amend the Capital Improvement and
Intergovernmental Coordination Elements to address financial feasibility,
coordinate school planning; and adopt a Public Schools Facilities Element which
includes provisions for school concurrency.
Topic Backqround and Analvsis
In 2005, the Florida Legislature approved the 2005 Growth Management Act,
commonly referred to as Senate Bill 360 (SB 360). This legislation mandated all
non-exempt Florida jurisdictions make public schools a concurrency related
facility by April 1 , 2008 for nearly all residential developments.
With regard to this requirement, the City of Ocoee amended its Comprehensive
Plan to include a new Public School Facilities Element (PSFE) that was
consistent with those adopted by other local governments within Orange County.
Additionally, the City amended the Intergovernmental Coordination Element
(ICE) to address coordination with the Orange County School Board (OCPS) in
the implementation of school concurrency, and amended the Capital
Improvements Element (CIE) to set forth a financially feasible public school
capital facilities program established in conjunction with OCPS.
In addition to amending the Comprehensive Plan, the City entered into an
Interlocal Agreement (ILA) with OCPS, Orange County and all municipalities in
Orange County in accordance with Chapter 163 of the Florida Statutes. The ILA
ensures that school concurrency is uniformly implemented throughout the County
and addresses the minimum requirements for school concurrency. In addition,
the City's Land Development Code (LDC) is in the process of being amended to
allow the City to successfully implement school concurrency and to be consistent
with the Comprehensive Plan.
Table 1.1
Level of Service Standards
School Facility T pe
Elementa
.K throu h 8
Middle
Hi h, including ninth rade centers
Ado ted Level of Service
110% of Ad'usted FISH ca acit
110% of Ad'usted FISH capacit
100% of Ad'usted FISH capacity
100% of Ad'usted FISH capacit
Planned School Facility Capital Improvements
In order to address and maintain adopted level of service standards, the Orange
County Public Schools Capital Improvement Plan identifies the following projects
to accommodate projected student enrollment increases and meet required
concurrency level of service standards:
. New Elementary School to provide relief in Concurrency Service Area "U"
(2017)
. New Relief Middle School proposed in North Ocoee (2009)
*Data obtained from OCPS 10 year Capital Outlay Plan*
Long Term Concurrency Management System
The Orange County School Board, Orange County, the City of Ocoee and all
municipalities agreed to maintain a long term concurrency management system
for public school facilities. In those areas where a backlog cannot be met within
five years to achieve the adopted LOS, an interim LOS standard shall be
implemented. The School Board developed a financially feasible plan to achieve
the adopted LOS standards within ten years by including projects in the School
District Facilities Work Plan to add educational facilities sufficient to
accommodate the demand. Orange County, the City of Ocoee and all
municipalities agreed to amend their respective Capital Improvement Elements to
reflect the long term concurrency management system.
The following tables identify capacity and enrollment in the schools that serve
Ocoee.
Table 1.2
Elementary Schools, 2009/2010 Capacity and Enrollment
Elementary 2009/2010 2009/2010 Percent
School Capacity Enrollment Utilization
Oeoee 356 802 225%
Spring Lake 424 569 134%
Thornebrooke 744 738 99%
Citrus 758 811 107%
Westbrooke 860 591 69%
Lake Whitney 622 628 101%
Table 1.3
Middle Schools, 2009/2010 Capacity and Enrollment
Middle School 2009/2010 2009/2010 Percent
Capacity Enrollment Utilization
Oeoee 1 ,443 1,640 114%
Lakeview 1,194 1,359 114%
Table 1.4
High Schools, 2009/2010 Capacity and Enrollment
High School 2009/2010 2009/2010 Percent
Capacity Enrollment Utilization
Oeoee 2,775 2,470 89%
West Orange 2,994 3,092 103%
Olympia 2,950 3,016 102%
Recommendations and Conclusions
An assessment of the Objectives of the Comprehensive Plan has been
completed to identify how their achievement relates to the special topic of
coordinating future land uses and residential development with the capacity of
schools. The City is currently meeting the Comprehensive Plan objectives
regarding school siting, coordination and acquisition. The Interlocal Agreement
adopted in 2008 provides mechanisms for ongoing coordination and
maintenance of level of service standards. Also in 2008, the City adopted and
transmitted to the State a Public Schools Facilities Element.
As required by Section 163.3191 (2)(i), Florida Statutes, the EAR must identify
any actions or corrective measures, including whether plan amendments are
anticipated to address the Special Topics identified and analyzed in the EAR. At
this time, the City of Ocoee is not proposing any modifications to the
Comprehensive Plan to address the public schools special topic. The .Interlocal
Agreement adopted in 2008 for public school facility planning, required by
Section 163.31777, F.S., has been adopted by all relevant parties.
--
City of Ocoee
Evaluation and Appraisal Report
G. Water Supply Planning
In 2004, the Florida Legislature enacted the Wekiva Parkway and Protection Act
(Wekiva Act) found in Chapter 369, Part III, Florida Statutes (F.S.). Each local
government in the Wekiva Area is required to amend its local government
comprehensive plan to include an update to 1 O-year water supply facilities work
plan and to develop a wastewater facility plan for the specific portions of their
joint planning area. Also, Section 163.3191 (2)(L), F.S. requires coordination
between water supply planning and future land use planning in order to ensure
an adequate supply of water to support future development. The City of Ocoee
approved the 10-year water supply facilities work plan for transmittal to the
Department of Community Affairs on August 03, 2010. This work plan includes
an evaluation of the present and projected growth and water demand as well as
an analysis of the existing production/treatment facilities and their capacities to
meet the City's existing and projected water demands for a 10-year planning
period. Updates to the comprehensive plan include the Future Land Use
Element, Sanitary Sewer Element Sub-Element, Conservation Element, and the
Intergovernmental Coordination Element.
The City is also submitting the Waste Water Facilities Plan for transmittal to the
Department of Community Affairs on September 21, 2010. The City of Ocoee
has performed planning over the last several years that identified wastewater
infrastructure to serve development growth in its western service area. Updates
to the comprehensive plan include updating the Sanitary Sewer Element Sub-
Element. A full revision to all the elements of the comprehensive plan are
scheduled to be included with the 2010 EAR based amendments.
City of Ocoee
Evaluation and Appraisal Report
Chapter 163.3191 (2)(f), F.S. requires that the EAR contain an evaluation and
assessment of relevant changes to the state comprehensive plan (187.201,
F.S.), the Strategic Regional Policy Plan (SRPP), Chapter 163, F.S, and Rule 9J-
5, F.A.C. since the adoption of the most recent EAR-based amendments.
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City of Ocoee
Evaluation and Appraisal Report
I. EAR Issues of Local Concern
Introduction
Throughout the various workshops, meetings, and input gathering sessions with
elected officials, citizens, and staff, the over-riding them has been one centered
around placemaking and better connectivity. The City has worked very hard in
recent times to begin looking at the Community Re-development Area in a light of
creating a focal center for more urban growth patterns. However, the City has
grown in a very suburban fashion to date and the current Comprehensive Plan,
while providing for interchange impact areas and activity center development,
has not focused intensely on creating the type of transportation connectivity
necessary for walkable streets, bicycle paths, and other modes of transportation.
This EAR identifies issues that relate to the larger community design question. In
order to address these issues, the EAR-based amendments will result in major
changes to the focus of the plan. The Issues are summarized below as listed In
the Letter of Understanding received by the Florida Department of Community
Affairs on May 5. 2009.
Issue 1: Community Character & Design
The City of Ocoee has developed primarily in a suburban format during its
history. This is related in large part to the suburban format promoted in both the
Comprehensive Plan and the Land Development Code, as well as being a side-
effect of being bisected by a large suburban thoroughfare (State Road 50).
Through community and elected official interactions, community character and
design was raised as a major issue. Input included comments on the City's lack
of urban places that are pedestrian oriented, as well as the sense of place
fostered by the privatization aspects of suburban format development. Through
this issue, we will identify opportunities for amending the Comprehensive Plan to
promote quality urban design in appropriate places and transitional design on the
urban/suburban interface. The City will also review the following:
a. How effective is the Comprehensive plan in fostering community
character.
b. How can the Comprehensive plan direct community design.
Issue 2: Transportation Connectivity
In order to create urban places, emphasis must be placed on the transportation
network, including the connectivity and design. Citizen and elected official input
has raised community character and design as a major issue; and it is vital to the
creation of well designed urban places that an appropriately designed network is
in place. This issue will evaluate the comprehensive plan and the long range
transportation plan in concert with community design goals. Alternative
City of Ocoee
Evaluation and Appraisal Report
transportation will be evaluated including bikeways, transit, trails, and sidewalks,
in addition to cross-sections that more effectively promote quality community
design.
a. The City will evaluate alternative transportation methods such as a multi-
modal plan.
b. The City will analyze the establishment of an interconnected trail system
connecting parks with other public amenities.
Issue 3: Utility Infrastructure
To meet the City's re-development and Greenfield development goals, utility
infrastructure must be thoroughly evaluated. In evaluation of this issue, the City
will closely study short, mid, and long-range utility expansion and the policy
framework that must be in place.
a. The City will study expansion of water and sewer In order to foster
redevelopment.
b. The City will examine policies that control and direct development with
respect to need for services.
Issue 4: Mixed Use Employment & Commerce Centers
Creating urban places requires examination of land uses in areas appropriate for
intensification. This issue will closely evaluate the land use framework that must
be in place for meeting the City's community design and character goals. This
issue also includes emphasis on evaluating land use absorption and how the City
should position itself to promote economic development through smart land use
strategies.
a. The City will study market repositioning, incentives, and impediments.
b. The EAR will address Economic Development.
Issue 5: Neighborhood Revitalization/Housing
The City of Ocoee is a dichotomy of older housing in its urban core. The EAR
will evaluate whether the comprehensive plan has adequate policies for the
integration of housing types and also for targeting re-development. The City will
promote a Neighborhood Planning program for the analysis of this issue with an
added focus on:
a. Review emphasis of sidewalks, housing rehabilitation and blight removal
through more stringent code enforcement.
City of Ocoee
Evaluation and Appraisal Report
b. Affordable housing / Workforce housing
c. Compatibility by place-making and character definition
Issue 6: Conservation
The EAR will analyze existing conservation policies in the Comprehensive Plan
for their effectiveness in addressing the protection and conservation of wetlands,
as set forth under Rule 9J-5.013(3) F.A.C and also the following:
a. Explore changing criteria on wetland systems to be inline with SJRWMD
and Orange County's requirements.
b. Evaluate and implement the requirements of the Wekiva Study Area.
City of Ocoee
Evaluation and Appraisal Report
MAJOR ISSUE #1: COMMUNITY CHARACTER AND DESIGN
STATEMENT OF MAJOR ISSUE
The City of Ocoee has developed primarily in a suburban format during its
history. This is related in large part to the suburban format promoted in both the
Comprehensive Plan and the Land Development Code, as well as being a side-
effect of being bisected by a large suburban thoroughfare (State Road 50).
Through community and elected official interactions, community character and
design was raised as a major issue. Input included comments on the City's lack
of urban places that are pedestrian oriented, as well as the sense of place
fostered by the privatization aspects of suburban format development. Through
this issue, we will identify opportunities for amending the Comprehensive Plan to
promote quality urban design in appropriate places and transitional design on the
urban/suburban interface. The City will also review the following:
a. How effective is the Comprehensive plan in fostering community
character.
b. How can the Comprehensive plan direct community design.
BACKGROUND
The existing development character of Ocoee is primarily suburban
neighborhoods in which older (circa 1950) traditional neighborhoods are located
central to the city. New subdivisions are characterized by large landscape
buffers, privatized amenities and limited connectivity. Further evidence of this
suburban form is reflected in the location of support uses, such as retail uses
located along corridors that bisect these areas.
HOW THE COMPREHENSIVE PLAN RELATES TO THIS ISSUE
The Comprehensive Plan in the Future Land Use Element, Transportation, and
Housing Element provides objectives and policies that address the issue of
Community Character. These objectives and policies are as follows:
Future land Use Element
Objective 7: The City shall enforce the Land Development Code to
preserve existing and future neighborhoods.
Policy 7.2: The City shall permit only low intensity office and low
intensity commercial development adjacent to residential areas
except where well buffered.
City of Ocoee
Evaluation and Appraisal Report
Policy 7.3: The City may permit non-residential uses within
residential areas after analysis of the proposed use has indicated
that such use will not adversely affect the residential area, will be
compatible with the residential character of the area, and will not be
otherwise inconsistent with this Comprehensive Plan. Such uses
may be implemented through the Land Development Code by a
special use permit. Non-residential uses may be permitted and
shall include, but not be limited to, home occupations, child care
centers, churches, schools, libraries, parks and recreational
facilities, marinas, boat houses, boat docks, stables, agricultural
accessory, guest cottages, and similar uses. Such uses shall be
restricted to setback regulations applicable to the zoning district in
which they are located.
Policy 7.5: To allow for greater open spaces, density may be
computed in a defined development project by allowing clustering in
certain areas. These clusters may be of greater density than
allowable within the land use designations as long as the total
project does not exceed maximum density as designated on the
Future Land Use Map. Clustering, pursuant to the foregoing
concept, may be controlled by density caps, PUD zoning or a
restrictive covenant running with the land with power of
enforcement in favor of the City.
Future Land Use Element
Objective 2.6: The City shall provide connections for all modes of
transportation between complementary land uses.
Policy 2.6.1: The City shall increase the number of neighborhoods,
commercial areas, parks, and recreation facilities served by transit
and bicycle/pedestrian facilities.
Objective 2.8: The City shall assist with improving mobility and energy
efficiency through non-automobile travel modes.
Policy 2.8.3: The City shall expand the number of land uses served
by bicycle and pedestrian facilities and transit.
Objective 3: The City shall coordinate with the private sector to ensure the
availability of adequate and affordable housing for the existing population,
anticipated population growth, and households with special housing needs
(including adequate sites for low and moderate-income housing and for
mobile homes), through the following policies (Chapter 187.201, Sea) and
S(b) 3; SRPP Section 3, Policies 3.1.1, and 3.1.4).
City of Ocoee
Evaluation and Appraisal Report
Policy 3.2: The City shall adopt land development regulations that
work to preserve the existing housing stock. The land development
regulations shall include (but are not limited to) regulation of land
uses to prevent encroachment of incompatible land uses within
existing neighborhoods. In addition, public facilities shall be
maintained and preserved to adequately supply the needs of existing
neighborhoods.
Objective 10: The City shall continue to provide quality housing
development to its residents, through the implementation of the following
policies.
Policy 10.1: The City shall continue to enforce regulations governing
the type of construction, utility provisions, size, location, and other
standard provisions for housing.
Policy 10.2: The City shall enforce and/or upgrade existing City
regulations requiring vegetative buffers in new development and
redevelopment between residences and major streets, and other
incompatible uses.
IMPACTS OF THIS ISSUE ON THE CITY OF OCOEE
If new residential development continues under the suburban form, the City will
not be able to provide the necessary infrastructure improvements (transportation,
potable water, and sewer) to keep with capacity demands.
IDENTIFICATION OF REQUIRED AMENDMENTS TO THE COMPREHENSIVE
PLAN THAT ADDRESS THE RELATED PROBLEMS AND OPPORTUNITIES
The comprehensive plan needs to be amended to create a Future Land Use
Element that contains specific language on how urban design and transportation
should be utilized. The City should consider adding an optional Community
Design Element with its EAR based amendments. This option would allow the
City to set a design and character vision that would relate to the Future Land Use
Map, but would be a support tool. The Design Element would establish a design
framework that is Citywide and would identify guidelines that relate to the key
elements of character associated with a vision based character map. The
following list identifies potential to the City's Comprehensive Plan:
. Optional Design Element that includes a character vision and typology
. Historic Downtown Protection Policies
City of Ocoee
Evaluation and Appraisal Report
. Changes to the Transportation and Future Land Use Element that coordinate
land use and transportation within the framework defined by the design element
. During the EAR based amendment cycle, the City should adopt specific
language into the Comprehensive Plan addressing the recommendations of this
Special Development Plan.
. The Future Land Use Element should be amended to formally adopt the Vision
Statement of the CRA, to add a new mixed-use land use category or other
mechanism to implement the relevant recommendations (network, design, form,
densitylintensity, etc.) of the CRA Target Areas regulating plans, and to identify
economic development incentives within the CRA. The Capital Improvements
Element should be amended to include a method of prioritizing CRA
infrastructure enhancements.
. The City should consider policies in the Future Land Use Element that encourage
the City to adopt a form based code implementing the urban design
recommendations of the study. Traditional zone based codes are most effective
when regulating based on the type of use. However, they are not effective at
regulating to a desired development form, particularly when an urban form is
desired. Because it is the desire of the City for the CRA to become an urban
place and incorporate design that encourages mixed-use and pedestrian friendly
environments, a form based code is the most viable option.
. The City should update the Future Land Use Element to require that the City
consider amending the State Road 50 Overlay with new urban standards to
replace the existing suburban standards. The. City of Ocoee has entered into a
Joint Planning Agreement with the City of Winter Garden and Orange County to
regulate design standards along SR 50. These design standards are now
outdated and do not reflect Ocoee's desire to create urban places along SR 50.
The standards are suburban and corridor-driven and do not effectively relate to
more urban centers, neighborhoods, setbacks, buffering, and landscaping. The
City should coordinate with Winter Garden and Orange County for an update to
the design standards utilizing a more urban framework.
. The City should consider amending the Future Land Use element to require
preparation of development standards for the historic downtown that are
consistent with the new standards recommended for the CRA.
. Ocoee's historic downtown is an important part of Ocoee's character and should
be considered as a redevelopment area that is complementary to the CRA.
Without this consideration, redevelopment efforts in the CRA may detract from
redevelopment and new development within the downtown, causing deterioration
of this area. By creating complementary development standards for the
downtown and the CRA, the City can help to ensure that both areas benefit from
quality urban redevelopment and new development.
. The City should create a wayfindinglsignage program for the CRA.
City of Ocoee
Evaluation and Appraisal Report
. As the CRA redevelops into a denser, urban place, the number of potential
destinations and transportation options will increase significantly. This positive
outcome will increase the need for additional wayfinding for automobiles and
pedestrians as they move through and around the area. A coordinated signage
plan should be produced to most efficiently direct traffic and maintain a
consistent design theme throughout the CRA.
. The City should complete a Multi-Modal Mobility Plan for the City that focuses on
improving interconnectivity through planning for multiple modes of transportation.
The purpose of a Multi-Modal Mobility Plan is to increase land values; provide for
less automobile reliant development; set a more efficient development pattern as
the City develops and re- develops; provide consistency with new state
legislation; enhance bicyclelpedestrian mobility and street connectivity; promote
a development form that is more consistent with the Vision of the CRA; and
evaluate future rail and bus rapid transit opportunities as well as local circulators.
City of Ocoee
valuation and Appraisal Report
MAJOR ISSUE No.2: TRANSPORTATION CONNECTIVITY
STATEMENT OF MAJOR ISSUE
The adopted Comprehensive Plan includes three categories of action for improving
mobility. Category I, System Management, offers operational and safety improvements
generally provided by intersection modifications, signalization, and access
management. Category II, Mobility and Demand Management, seeks to reduce the
demand for private motor vehicle travel through increased use of transit, bicycles, and
walking through a combination of community outreach, sidewalk construction, and
bikeway improvements. Category III, Roadway Capacity Improvements, proposes new
street construction and add-lanes projects to eliminate congestion that cannot be
addressed with Category I and II actions. These categories are general organized by
difficulty of implementation, with Category II requiring more private behavioral changes
and Category III requiring more public and private funding relative to Category I actions.
The central difficulty in implementing these strategies is the lack of money. There is no
public revenue stream to support transportation system improvements. The road-
building period of the City of Ocoee using city funds ended with completion of the Old
Winter Garden Road project in 2006. Transportation impact fees are at a level barely
sufficient to make the payments on bonds sold to finance construction of Clarke Rd. and
widening of Maguire Rd. and Old Winter Garden Rd. Even in the best of times, impact
fees for transportation are highly volatile, being dependent on one or two large projects
per year. When impact fee collections are inadequate, as they may be in 2010, the
City's General Fund will be required to subsidize bond payments.
System expansion is not the only aspect of transportation system management that is
under funded. City revenues from property and motor fuel taxes are also insufficient to
fully fund an adequate street resurfacing program or to sustain an aggressive sidewalk
construction program. Right of way limitations preclude the construction of bikeways
along major streets. Several streets in the historical city are less than 20 feet wide and
have uneven pavement that makes bicycle travel difficult. Sidewalks are virtually non-
existent except in the newer subdivisions.
Save for the three projects funded by bonds I the 1990s and the early part of this
decade, all road construction has occurred as part of private developments, primarily
residential subdivisions. That new residential development has taken the form of
functional cui de sacs connected to the city's major street network, mainly Clarke Rd.,
Ocoee-Apopka Rd., and Maguire Rd. Lack of cross-connections increases travel
distances for everyone and makes motor vehicle travel virtually mandatory. Even
emergency vehicle travel times are significantly affected, leading to the City of Winter
Garden being the first responder to fires and medical calls in northwestern Ocoee.
Absent the realistic ability to fund construction itself, the City of Ocoee must look
towards more effective management of private investments and a stronger role in
deciding how state and federal dollars for transportation are spent. Multimodal
City of Ocoee
valuation and Appraisal Report
alternatives discussed in the Comprehensive Plan and in the list of Major Issues for this
Report have been rendered even less likely given a substantial withdrawal of transit
services to the Ocoee area by the regional provider, LYNX. Thus, the alternative
~.~ ~-transportation-foeus-described-in-the-Gity's-Iist-of-major-EAR-issues must take a--
different direction here than was originally planned.
That "different direction" is toward the use of the Shared Space mobility design
concepts for urban infill projects. These design concepts reinforce the neotraditional
design philosophy being embraced in the discussion of neighborhood revitalization in
Major Issue NO.5. To the extent practical, Shared Space design concepts will be
encouraged for future developments where motor vehicle and pedestrian/bicyclist
interaction is expected. The City will evaluate within this major issue whether the
Comprehensive Plan has adequate policies to support multimodal pathways through
new developments and areas of revitalization activities.
ISSUE BACKGROUND AND ANALYSIS
The City ofOcoee, Florida, is bounded or bisected by four major highways: Florida's
Turnpike (SR 91), SR 50 (Colonial Drive), SR 408 (East-West Expressway), and SR
429 (Western Beltway). All except SR 50 are limited-access highways. Like rivers of
water, these limited-access rivers of traffic can only be crossed on a bridge. The at-
grade intersections on SR 50 are the most congested locations in the city. In addition,
SR 50 in Orange County is rated as the 1ih most dangerous road in the U.S.1
Map 3. Major roadways in the City of Ocoee.
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reported in Vanderbilt, Tom, Traffic: Why we drive the way we do, New York: Alfred A. Knopf, 2008, p. 205.
City of Ocoee
valuation and Appraisal Report
Map 3 shows the location of the City of Ocoee within the western half of the Orlando
metropolitan area. Ocoee is bordered to the west by the City of Winter Garden and to
the east by a large portion of unincorporated Orange County, substantial portions of
-which-form-the-economically-depressed-Eine Hills-Community.-North -is the City of--
Apopka, second largest in Orange County, and south is the Town of Windemere.
The City of Ocoee has nearly tripled in population since 1990 without any appreciable
addition to its major street network since Clarke Road, an urban minor arterial
constructed by the city, was opened to traffic in 1991. In contrast, the highway network
has grown dramatically with the extension of SR 408 from Hiawassee Rd. east of
Ocoee to connect to Florida's Turnpike and the southern end of Clarke Rd. The most
recent major highway addition was SR 429, which is the western section of the
metropolitan ring highway that also includes SR 417. From Ocoee, SR 429 provides a
connection south to 1-4 and the Tampa Bay area.
While the limited-access highways offer a way for people to get to and from Ocoee, they
do not offer a means for travel to occur within the city. The local street network is
intended to serve that purpose, but discontinuities in that network prevent travel through
the city on a single facility in an east-west direction. Clarke Rd. on the east and a
combination of four streets on the west provide north-south travel through the city.
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City of Ocoee
valuation and Appraisal Report
Map 4 shows the routes followed by the major streets in and through Ocoee. Both SR
50 and SR 438 provide east-west travel through the city on the State Highway System,
although the route followed by SR 438 is not direct. For most of its path through the
city, SR 438-is-a-two-lane-road,-East-of-Clarke-Road,it is-a-four-Iane divided highway.
The newest highway shown on the map, SR 429, is a toll road that basically follows the
western city limit of Ocoee, which is shared as the eastern city limit of Winter Garden.
Highways are functionally classified based on their relative importance for mobility and
land access. The more access a highway provides to adjacent property, the less it is
able to support long-distance travel. SR 50 is a principal arterial serving a coast-to-
coast mobility function within the State Highway System. It is the only continuous non-
toll path between the cities of Clermont, Oakland, and Winter Garden to the west of
Ocoee and the City of Orlando to the east. But it is also the primary means of access to
the commercial center of Ocoee, with frequent driveway cuts and large turning
movements. As a result, SR 50's mobility function is significantly curtailed within
Ocoee. The friction between long-distance and local travel creates congestion.
The SR 50 corridor through Ocoee.
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Map 5 highlights the major streets and land uses in the SR 50 corridor. To the east are
Blackwood Ave. (shown) and Clarke Rd. (see Map 2). To the west are Marshall Farms
Rd. (shown) and the intersection of SR 429, SR 50, and Florida's Turnpike (see Map 2).
In the middle are the major north south roads of Bluford Ave. and Maguire Rd. Story
City of Ocoee
valuation and Appraisal Report
Rd./Geneva St. is parallel to SR 50 about half a mile to the north and Old Winter
Garden Rd. is parallel to SR 50 a quarter of a mile to the south. Neither parallel
facilities cross the entire extent of the area shown on Map 4. In fact, SR 50 is the only
surface street that completely traverses the city from west to east on a single roadway.
Large tracts of undeveloped land remain in the SR 50 corridor.
The City of Ocoee, in cooperation with Orange County, recently completed the
reconstruction and extension of Old Winter Garden Road to serve as a parallel facility
for local traffic to the south of SR 50. Currently proposed development projects extend
this street further to the west (across Maguire Road). Earlier, the city had completed
the widening of Maguire Road to four lanes north through the SR 50 intersection. The
design has been completed and right of way acquisition is underway for extending the
widening north to the Story Road intersection. (Note that north of Marshall Farms Road,
this roadway is called Kissimmee Avenue.)
Even though SR 50 is functionally classified as an Urban Principal Arterial, it is
designed to a rural highway standard, which means it has wide shoulders, an open
drainage system, and limited support for pedestrians and bicyclists. When the city's
population was less than 8,000 people and local development consisted of only a
couple of hotels at the Turnpike exit in a community known then as Minorville, a rural
highway design was appropriate. These roadway characteristics are hardly compatible
with the urban uses that now line the highway as it traverses the City of Ocoee, a city
with a population in excess of 34,000 people.
Unfortunately, the Florida DOT has determined that even converting the facility to a six-
lane urban highway will not appreciably improve the current level of congestion.
Nevertheless, FOOT has proposed a project to widen SR 50 through Ocoee to six
lanes. The projected cost of the project is in excess of $65 million; however, it is not
presently funded and is not the top priority for new funds if they become available.
Traffic planners also say the project will not relieve the congestion in Ocoee, which is
largely determined by two intersections. As proof that the widening project is not a
near-term prospect, a resurfacing project for this section of SR 50 has been
programmed by FDOT for Fiscal Year 2012.
Rather than simply adopt the "wider is better" approach to solving the SR 50 mobility
problem and hoping that someday funds will be provided for the project, the City of
Ocoee has proposed an alternate route: take local traffic off SR 50. There is little that
may be done to redirect traffic destined for the businesses now on SR 50, but most of
the commercial core of Ocoee is greenfield space located in a designated Community
Redevelopment Area (CRA) and presently including almost no urban infrastructure.
The City of Ocoee proposes to take advantage of this blank canvas to design and build
a local street network that will serve local traffic, thereby providing immediate relief for
SR 50. Such an alternative can be constructed for less than half the cost of widening
SR 50.
City of Ocoee
valuation and Appraisal Report
Map 6 (below) illustrates in blue those facilities to be built, realigned, or otherwise
impacted by the proposed project. Bluford Ave., among existing streets, will change the
most. South of Geneva Street, it will turn due south and join Maguire Rd. South of SR
---- 50, it-wiIHurndue-north-and-cross SR50-following-the-current-alignment--of-Central
Commerce Lane and generally follow the shoreline of Lake Bennet to an intersection
with Blackwood Avenue. Maguire Rd. will turn to the east and join the extension of
Blackwood Ave. at a new intersection with Bluford Ave. West of this intersection,
Maguire Rd. will be widened to the Story Rd. intersection. Story Rd. will be widened to
four lanes west of this intersection. Improvements will also be made on the Maguire Rd.
approaches to the SR 50 intersection.
Map 6. The proposed town center project area facilities.
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The proposed $20 million project will redirect local traffic onto a parallel facility north of
SR 50 that spans from Blackwood Avenue in eastern Ocoee to Dillard Street in
downtown Winter Garden. (The cities of Ocoee and Winter Garden cooperatively
developed this overall design but are separately funding the project components located
within each jurisdiction.) Approximately 40% of the route is entirely new alignment; the
balance of the route connects and expands the capacity of existing two-lane roads.
Design and right of way acquisition is already underway. Private interests who hold key
properties required for the route have committed to provide right of way valued in the
millions of dollars, and the City of Ocoee has applied for a TIGER Discretionary Grant to
finance the bulk of the public costs of construction.
City of Ocoee
valuation and Appraisal Report
Several, but not all, of the roads listed as part of the subject project are federal-aid
eligible, which requires a functional classification of Urban Collector or higher in the
Orlando metro area. The functional classification, 2008 traffic volume, and 2008 level of
service rating of roads included in this project proposal are listed in Table 13.2 (below)
Table 13. Project roadways with functional class, traffic vOlume3, and level of service4
data.
Level
Functional Traffic of
Roadway From To Classification (AADT) Service
SR 50 Marshall Maguire Rd Urban Principal 49,500 C
Farms Rd Arterial
SR 50 Maguire Rd Bluford Ave Urban Principal 53,500 F
Arterial
SR 50 Bluford Ave Blackwood Urban Principal 44,000 C
Ave Arterial
SR 50 Blackwood Clarke Rd Urban Principal 44,000 C
Ave Arterial
Maguire Rd Old Winter SR 50 Urban Collector 22,000 A
Garden Rd
Maguire Rd SR 50 Marshall Urban Minor 11 ,100 A
Farms Rd Arterial
Kissimmee Marshall Story Urban Minor 13,700 A
Ave Farms Rd Rd/Geneva St Arterial
Marshall SR 50 Maguire Rd Urban Collector 5,800 0
Farms Rd
Bluford Ave Old Winter SR 50 Urban Minor 5,700 C
Garden Rd Arterial
Bluford Ave SR 50 Geneva St Urban Minor 9,200 C
Arterial
Geneva sf' Kissimmee Bluford Ave Local 8,500 B
Ave
Story Rd SR 429 Kissimmee Urban Collector 8,900 B
Ave
2 All roads not listed in the table are classified as Local; AADT and LOS values are not available. LOS values are
also not available for limited-access toll highways (SR 408, SR 429, and Florida's Turnpike).
3 Traffic volume is reported as annual average daily traffic (AADT) based on counts taken by Renaissance Planning
Group for the City of Ocoee (except that SR 50, SR 408, SR 429, and Florida's Turnpike volumes are from Florida
DOT) and reported October 31, 2008. The reported numbers have been rounded to the nearest 100 vehicles.
4 Level of service (LOS) relates to the sensitivity of traffic flow to disturbances, which is the generally accepted
measure of congestion. The lower the letter grade assigned, on a scale of A (best) to F (worst), the less the roadway
can accommodate disturbances. Values were determined using the Florida DOT methodology. Level of Service F
means that traffic demand is greater than capacity during the peak hour.
5 Story Road is called Geneva Street east of Kissimmee A venue (a.k.a., Maguire Road). The intersection of Bluford
A venue and Geneva Street is one block east of the intersection of Story Road and Kissimmee A venue (a.k.a.,
Maguire Road).
City of Ocoee
valuation and Appraisal Report
Level
Functional Traffic of
Roadway From To Classification (AADT) Service
Blaekwood--- -Gld-Winter- -SR-50 L-.ocal 8,-1 OO~ -A
Ave Garden Rd
Blackwood SR 50 Montgomery Local 3,600 C
Ave Ave
SR 408 Clarke Rd Good Hames Urban 58,000 n.a.
Rd Expressway
Florida's SR 50 SR 408 Urban 104,200 n.a.
Turnpike Expressway
SR 429 Florida's Franklin St. Urban 34,000 n.a.
Turnpike Expressway
While moving traffic from a major highway onto local streets is a fairly novel approach,
the City of Ocoee proposes to go further by adopting the Shared Space concept6 for the
new facilities as a means of significantly enhancing the livability of the area that will be
opened to mixed-use development. Among the design concepts that will be used are
brick pavements, narrow lanes, limited signing, and smaller scales of development
along the streets. The general idea is to make local streets look different from highways
as a means of altering the behavior of drivers. The result is a greater equivalency
between pedestrians, motorists, and bicyclists within a mixed-mode, mixed-use
development; i.e., no more raging rivers of traffic for pedestrians to ford. This design
approach will be used for the eastern half of the project.
The central aspect of the Shared Space design philosophy is the integration of
transportation facilities into the entire space, as opposed to the complete separation of
transportation from other land uses. Motor vehicle traffic is still restricted to the paved
roadways, but the typical visual separations created by shoulder recovery zones,
extensive traffic controls, and other common aspects of traditional highway design are
absent. The result is a higher degree of interaction and acknowledgement between
pedestrians, drivers, and other inhabitants of the shared space devoted to public uses.
The objective of traditional traffic engineering and roadway design is to increase safety
by separating uses and providing a wide recovery zone for motorists along the roadway.
These design standards are well developed in the AASHTO publication, A Policy on
Geometric Design of Highways and Streets, the so-called "Green Book." FDOT has its
own version of the green book that actually predates the AASHTO standard and applies
to local governments in Florida. It is the central contention of the Shared Space design
philosophy that the very standards that are intended to increase safety actually work to
make the roadways less safe in some cases. The problem is that the standards make
the roadways look safe when they are not.
6 For more information on this traffic engineering philosophy, go to htto://en.wikipedia.org/wiki/Shared space and
http://www.wired.com/wired/arch ive/ 12. 12/traffic.html.
City of Ocoee
valuation and Appraisal Report
Figure 1. A typical suburban intersection. 7
Figure 1 illustrates a typical suburban intersection. The roads include wide lanes, there
are large corner radii, and various spaces are well defined. The design used in open
highway portion in the distance is exactly the same as that used in the commercial area.
The implicit message to the driver is, "These areas are the same, so you can drive the
same way; this is your space." That means there are not likely to be any pedestrians,
speeds can be maintained, and the automobile has the right of way.
Figure 2 (next page) shows the same intersection under the Shared Space concept.
Here, the road is shown as the start of the Shared Space area. It is obvious that
something is different from the approaching suburban street. The space devoted to the
street is smaller. There are no wide shoulders. In fact, large trees are close to the edge
of the road and there is on-street parking. People are walking right next to the road and
crossing the street. These design elements send a different message to the driver: slow
down, expect pedestrians, expect cars to pull out in front of you; this is shared space.
Note also that the road shown in both figures is exactly the same. There are the same
lane widths and the same traffic control. What changed was the context of the road.
7 All figures in this section are courtesy of the consulting firm Glatting Jackson Kercher Anglin, 2006.
_ i
City of Ocoee
valuation and Appraisal Report
Figure 2. The intersection of Figure 1 revised using Shared Space concepts.
Figure 3 illustrates the typical cross-section proposed for major streets in the project
area east of Maguire Road. The motorway is lined by parallel bike lanes, outside of
which are on-street parking spaces and planted island. The roadway itself actually
wider than the traditional roadway at more than 30 feet, but it is a shared space for
automobiles and bicycles and, thus, appears narrower to the motorist. The difference in
pavement surface between the bike lanes and the central motorway make the road look
narrower, as do the planted islands, which encroach slightly into the roadway.
Businesses are expected to make use of the wide sidewalks, which become shared
spaces between the roadway and the adjacent land uses. For example, seating,
canopies, and sidewalk cafe uses are typical land use extensions into the roadway
space.
Figure 3. Typical major street profile.
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City of Ocoee
valuation and Appraisal Report
Figure 4 shows an alternative design for parkways, where bicycles are moved to a
separate facility. The right of way width is the same, as is the total width of motorway.
The-Ievel- of-use-sepa ration-is-higher-th an -with-the-desig n-shewn- in-Fig u re-3,se -veh icle
speeds may be slightly higher. Planted islands are spaced intermittently along the
median are paired with side encroachments to narrow the roadway as a means of
marking points of expected pedestrian crossing. The width of motorway use is defined
by a narrow flush concrete curb where on-street parking is provided. These visual cues
tell the motorist to be prepared for pedestrians and other cars. The Shared Space
design actually uses fewer traffic control additions, like signs and pavement markings,
to tell motorists and pedestrians what to do. So-called "traffic calming" does not have to
be added to the design; it is an inherent part of the roadway environment. As a result,
users negotiate with each other in order to share the roadway8, and the roadway is
better integrated into the other land uses of the area.
Figure 4. Typical parkway profile with separate multi-use trail.
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Most major intersections within this portion of the project area will be controlled by
roundabouts. Several Shared Space designs actually make the center of the
roundabout a pedestrian island where people can sit in a sort of small-scale park.
Crosswalks are not designated in roundabouts; pedestrians can cross to the center
island at any point along the roadway. Minor intersections will require the traditional
stop sign designation of right of way, but the closed space of these intersections will
reinforce a need to interact with all traffic.
8 In this context, "negotiate" means only that the road users must acknowledge and accommodate each other.
City of Ocoee
valuation and Appraisal Report
Figure 5 illustrates a version of the parkway design for use where adjacent commercial
and residential uses are more intense. The level of integration between roadway uses
is returned to the level provided by the design in Figure 3, but there is still separation of
modes-between- various-parts-()f-the-()vera II-facility,as-offered-by-the- pa rkway-desig nof
Figure 4. On-street parking is more common and appears on both sides of the street.
Two-way traffic combines with on-street parking and other aspects of the design to slow
down motor vehicles. Paved surface textures, such as the use of tinted concrete pavers
and contrasting concrete surfaces, also contribute to both an "old world" urban feel and
slower traffic.
Figure 5. Typical roadway profile for commercial property access.
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All of this focus on slowing down traffic would generally support a conclusion that it
takes longer to traverse a roadway where the design concepts of Shared Space have
been followed. In actuality, though, the result has been quite the opposite: slower traffic
leads to higher overall speeds.9 The slower vehicle speeds encouraged by the Shared
Space design leads to heightened alertness by motorists and a greater ability to interact
with other road users.
Together with other design guidelines now being developed for the urban area overlay
that embraces the eastern half of the project area, which is part of the eRA, the new
community will immediately provide a clear sense of space, of being different from the
SR 50 highway to the south. The result will provide the "new old town center" of Ocoee
and go a long way toward neighborhood revitalization and creating a sense of place.
Of course, the Shared Space design approach will be applied only to the area where it
is appropriate. In the substantially industrial area of Maguire Road (Kissimmee Avenue)
and Story Road, traditional design standards defined in the Florida Greenbook will
apply. It is also important to note that the Florida Greenbook Committee endorsed a
new chapter for the next edition of that publication titled, "Traditional Neighborhood
Development." This chapter moves the standard in the direction of that set by the
9 McNichol, Tom, op. cit., p. I.
City of Ocoee
valuation and Appraisal Report
Shared Space initiative. It makes clear distinctions between "conventional" design
contained in the Greenbook today and "traditional" design that is more appropriate to a
mixed-use environment of the type planned for the eastern project area.
Another aspect of the project is that job-creating development is ready to go as soon as
the infrastructure is in place to provide access to the target area. Among the projects
slated for the area is elderly housing, some of which is in the form of assisted living.
Creating a mixed-use, small-town area for these new residents will provide them with
commercial and medical amenities while also offering the ability to walk to these
destinations.
The western half of the project within the City of Ocoee serves primarily industrial and
institutional land uses. The facilities in this area will receive a more traditional design
approach due to its heavy truck traffic and limited pedestrian activity. Two-lane streets
will be widened to four lanes and intersections will be improved with turning lanes and
updated traffic signals.
In addition to rerouting local traffic onto the new parallel facility north of SR 50, direct
improvements will be made on SR 50 to reduce traffic congestion. The biggest existing
impediments to mobility on SR 50 are the Maguire Road and Bluford Avenue
intersections. Both locations experience heavy turning movements, which significantly
extends the side-street green phase. In fact, although Maguire Road is the only north-
south road joining the areas of the city located on either side of Florida's Turnpike, there
are many more turn lanes than through lanes at the SR 50 intersection.
Green times on a traffic signal are proportional to the length of queues waiting for each
permitted movement. Shifting turning movements to the facilities north and south of SR
50 allows reduced time for the left-turn phases. As a result, one left-turn lane in each
direction of Maguire Road can be reallocated to the through movements, which will
allow their allocation of green time to be reduced for the same level of service. These
minor changes at the Maguire Road intersection will reduce the stop time for traffic on
SR 50.
At the Bluford Avenue intersection, a more radical approach will be applied. First, this
skewed-angle intersection will be closed, as Bluford Avenue to the north will be
realigned to connect to Maguire Road. From the south, Bluford Avenue will be
realigned to Central Commerce Lane, which will be extended across SR 50 at a right
angle to form the interior road around Lake Bennet serving the core of the newly
developing area.
Collectively, these two sets of intersection improvements will alter traffic flow so as to
provide longer green times for traffic on SR 50 while not imposing additional delay on
local traffic crossing SR 50. When combined with the relocation of local traffic to
parallel routes north and south of SR 50, the end result will be greater mobility on SR 50
at a much lower cost than simply widening that State Highway.
City of Ocoee
valuation and Appraisal Report
The City of Ocoee and private-sector participants are committed to supplementing any
TIGER grant funds and other resources that may become available with existing
financial allocations to various project components and to providing all necessary rights
of way. Such a public-private coalition is a prime example of the strategy to leverage
City funds with investments by private developers and other levels of government.
Recommen dations
The current Comprehensive Plan's Transportation Element includes a long list of new
roadway capacity projects to be built. The City of Ocoee does not have and cannot wait
for the funds required to be provided by others so these projects can be constructed.
As noted in the Neighborhood Revitalization and Housing issue discussion later in this
Report, the continued high rate of residential growth upon which the need for these
projects is based is neither sustainable nor desirable. Simply doing more of the same
things will not create the level of change necessary for the City of Ocoee to have the
kind of sustainable future that its citizens want and the community can afford.
The first goal of the Transportation Element is "Develop a transportation system which
preserves Ocoee's unique community character and quality of life." The City should
consider amending this goal to become "Develop a transportation system that facilitates
creation of a unique character for Ocoee that supports the quality of life its residents
desire." On the surface, the revised language appears to just rearrange some of the
words, but the effect is great. Such a change recognizes that a central requirement is
for Ocoee's transportation system to form a community backbone that supports
multimodal travel with substantially higher densities in appropriate areas.
Some of the foundation concepts for this transformational revision is already in the
objectives and policies of the Comprehensive Plan. For example, Policy 1.2.1 calls for
the City to provide transportation that convey a sense of place and uniqueness to
travelers entering Ocoee. Using a unique design transect is certainly one way to
implement this policy. Similarly, Objective 1.3 calls for the City to direct the location of
growth through the provision of multi-jurisdictional transportation facilities that are
consistent with and enhance existing and planned uses. The planned new town center
project, developed cooperatively with the City of Winter Garden and FDOT is an
excellent example of meeting this objective.
The basic conclusion is that existing goals, objectives, and policies in the Transportation
Element are still largely applicable to the revised perspective for using transportation
facility design as a key component of the unique Ocoee brand. Certainly, some need to
be revised or deleted, but what the City should primarily consider amending is the
manner in which these goals, objectives, and policies are to be applied. Instead of
drafting a long list of projects for which funding will never be available, the City needs to
focus on transportation design standards, such as those included in the Shared Space
concept, as a guide for creating new form-based design standards founded on transects
that can actually be realistically employed.
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valuation and Appraisal Report
Some project-level work, though, must be included. The example project north of SR
50 may not be funded, but it does serve to show how the City can work with private
interests and other units of government to cooperatively make coordinated investments.
Eventually, that valuable vacant property will be developed by someone. As noted
elsewhere in the discussion of other major issues, there are additional areas of the city
where transportation system changes need to be made as part of development and
redevelopment activities.
One such area is the SR 438 corridor that includes western Silver Star Rd., H.M.
Bowness Rd./Ocoee-Apopka Rd., and Franklin St. The western end of this corridor is
defined by the SR 429 interchange, a facility with no nearby development. This corridor
can become a new western gateway to the heart of the city, stimulating both new
development in the form of a new employment center and redevelopment in the space
between the interchange and Starke Lake. Including this area in a new or expanded
CRA is a strategy that should be strongly considered.
The City of Ocoee has exceptional external connectivity to the state's major highway
system. What it lacks, though, is connectivity within its own geographic limits. A series
of isolated residential subdivisions have been built along urban arterials, thereby
eliminating the ability for the city to interconnect these neighborhoods and increasing
the need for motor vehicle travel. Those major roadways themselves have little
connectivity to other major roadways in the city, in large part due to gaps in
development between the historical city in the center and the surrounding residential
areas.
The proposed SR 50 town center and SR 438 corridor are the primary examples of how
internal connectivity can both improve the lives of Ocoee's citizens and provide a
stronger sense of place. The City should consider modifying the Comprehensive Plan
to better focus the City's resources on such strategic projects while simultaneously
supporting the use of model transects and urban design standards. As noted
elsewhere, transportation is one of two limiting factors for development. The other is
utility infrastructure, particularly sanitary sewers, which are largely absent in the center
of Ocoee, where redevelopment is most critically needed. Thus, transportation
investments must be coordinated with those in utility services.
mm j
City of Ocoee
Evaluation and Appraisal Report
MAJOR ISSUE 3: UTILITY INFRASTRUCTURE
To meet the City's re-development and Greenfield development goals, utility
infrastructure must be thoroughly evaluated. In evaluation of this issue, the City
will closely study short, mid, and long-range utility expansion and the policy
framework that must be in place. The City will study expansion of water and
sewer in order to foster redevelopment. The City will examine policies that control
and direct development with respect to need for services.
There has not been a comprehensive approach to infrastructure needs in the
City. Potable water and sanitary sewer are provided by the City and Orange
County through a utility services territory agreement. Many areas in the City do
not have access to sanitary sewer. The City has primarily focused on upgrades
to existing facilities.
There are goals and policies in the City of Ocoee Comprehensive to provide
adequate services and facilities to newly developed or redeveloped property and
to protect the ability of those services and facilities to function properly. These
services and facilities shall be provided in an economically feasible manner, as
outlined in the Infrastructure Element Sub-elements, and shall be provided in a
manner to discourage urban sprawl. The policies listed reflect common
development standards and concurrency requirements. Policy 2.10 requires the
City to complete a study of all areas where blight conditions may occur. A blight
study was done for the area limited to the CRA only.
LOCATION OF EXISTING INFRASTRUCTURE SERVICE AREAS & DEMANDS
The City of Ocoee and Orange County have a Joint Comprehensive Area
Interlocal Agreement from 1987 that specifies the conditions in which water and
sewer service will be provided to properties located within the City's Joint
Planning Area. The City's Joint Planning Area can be broken down into three (3)
utility service areas: North, Central, and South. The City of Ocoee provides water
and wastewater services to residents located within the City's Central area.
Water and wastewater services are provided by Orange County in the North
service area. In the South service area, water and wastewater services are
provided by Orange County.
The City is developing utility infrastructure to serve Northwest Ocoee based on a
development study completed by Renaissance Planning Group in May 2006.
The (study) indicated that the City lacks the infrastructure to meet demands
based on a 2025 projection. However, only a portion of the Northwest sector falls
within the City's utility service area.
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Evaluation and Appraisal Report
Ocoee owns and operates one wastewater treatment plant in the City's service
area. The new WWTF has a design capacity of 3.0 mgd. This facility presently
treats 1.534 mgd ADF. The A.D. Mims Road WWTF is a conventional activated
sludge process consisting of mechanical screening, grit removal, dual oxidation
ditches, secondary clarification, chemical feed facilities, tertiary sand filtration,
and chlorination.
The City of Ocoee has only been in the wastewater utility business since the
beginning of 1988 and has no long-term records of capacity demands and
historical consumption volumes. The City designated a level of service (LOS) of
270 gallons per equivalent residential unit (ERC) at that time and has maintained
that number for consumption and impact calculations. The LOS of 270 gallons
per ERC is adequate and shall provide sufficient capacity for future users of the
system
Level of Service standards (as they appear in the Land Use Regulations) are as
follows:
· Sanitary Sewer - The City is to provide 270 gallons per day equivalent
residential units (ERU).
. Potable Water - The City is to provide potable water at a level of service
of 300 gallons per day per ERU.
The City of Ocoee is in the process of renewing its Consumptive Use Permit
(CUP). The CUP allocates the City a maximum annual groundwater withdrawal
of 1,580.5 MGal (4.33 mgd) for the public water supply system.
FINANCIAL FEASIBILITY TO PROVIDE REQUIRED POTABLE WATER AND
INFRASTRUCTURE SERVICES
The City of Ocoee's Capital Improvement Element (CIE) in the Comprehensive
Plan serves as the City's plan to identify infrastructure for the CIE to compliment
the Infrastructure Element. The City of Ocoee's CIE states that the Water
facilities should be designed to provide the population's needed supply. The
level of service is an indication of service quality provided by or proposed to be
provided by a water facility, based on the operational characteristics of the
facility. The normal water_consumption, at this time, is 400 gallons per day (gpd)
per connection. The City is aware that the LOS is higher than normal and is
aggressively pursuing the development and growth of the City's reuse system,
which should bring the LOS figure back down to the generally accepted figure of
300 gpd/ERU. In addition, 300 gpd/ERC is used as the level of service for
projecting future water demands.
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Evaluation and Appraisal Report
The City of Ocoee's current capital project list from the 10-Year Water Supply
plan's Capital Improvements Plan is as follows:
· North Water Repump Facility - $2,150,000
· Turnpike Widening Relocation of water supply main & wastewater -
$2,875,000
· Southside Water Plant Well #3 Upgrade - $300,000
· Minor Water Line Replacements and Upgrades - $300,000
· Improvements to Wells 1&2 - $15,000
INFRASTRUCTURE SYSTEM ISSUES
· The Capital Improvement Element has not been updated since 2001,
thus does not reflect the City's current interest.
· Need for revised strategies in the element and CIE.
· The infrastructure Element needs to be revised to incorporate the water,
waste water and reuse in the same section.
· Level of Service (LOS) needs to be revised to reflect the Consumptive
Use Permit LOS.
· Capital Improvement Program needs to be aligned with CIE goals
INFRASTRUCTURE SYSTEM RECOMMENDATIONS
· Adopt the Capital Improvement Element on an annual Basis giving the
Infrastructure Element a direct tie-in to the budget process.
· Use the Evaluation and Appraisal Report (EAR) based text amendments
to permit the Comprehensive Plan to act as the main development guide.
· Update the Infrastructure Element to bring in compliance with the Wekiva
1 O-year Water Supply and CUP amendments
City of Ocoee
Evaluation and Appraisal Report
MAJOR ISSUE #4: MIXED USE EMPLOYMENT & COMMERCIAL CENTERS
STATEMENT OF MAJOR ISSUE
Creating urban places requires examination of land uses in areas appropriate for
intensification. This issue will closely evaluate the land use framework that must be in
place for meeting the City's community design and character goals. This issue also
includes emphasis on evaluating land use absorption and how the City should position
itself to promote economic development through smart land use strategies.
a. The City will market repositioning, incentives and impediments.
b. The EAR will address Economic Development.
BACKGROUND
Historically, agriculture was the major component in the City's economic base. However,
due to freezes and the resulting crop damage and destruction, the City's significance as
an agricultural center has all but disappeared. Commercial, industrial and professional
land uses within the City have replaced agriculture as the mainstays of the local
economy. Currently, some of the major employers for the residents in Ocoee include the
West Oaks Mall, Florida Auto Auction, Sysco Food Service and Health Central Hospital.
Moreover, Ocoee continues to be a viable and desirable community in the area due in
part to easy access via Florida's Turnpike (SR 91), Western Expressway (SR 429), East-
West Expressway (SR 408) and Colonial Drive SR 50. This unique transportation-hub is
truly the greatest "asset" that the City of Ocoee has for promoting its local economic
development.
Even with the nation's economic downturn, the City has seen and will continue to see
ample growth. This growth is primarily a function of this unique transportation system
prevailing within the region and the City's proximity to regional employment centers. The
emergence of easily accessible toll roads leading to regional tourist attractions,
commercial centers, industrial centers and the airport makes the City of Ocoee attractive
to residential, commercial, service, and industrial development. The City's close
proximity to many employment generators has greatly enhanced the growth of the City.
However, there are also some negative perceptions towards this "asset" as well. Ocoee
is sometimes referred to as the western "bed and breakfast" community for the City of
Orlando mainly due to the lack of having major employment & commercial centers of its
own.
During the process of identifying the City's major issues, there was a general consensus
that in order to capture significant employment and commercial centers in the City, the
City needed to address the issue of accommodating growth for the local economy and
still maintain the "quality of life" for its residents; in general, a strategy to attract specific
"target businesses" that would promote long-range sustainable local economic growth.
Through this issue, the EAR will identify opportunities for amending the Comprehensive
Plan to promote Mixed Use Employment & Commercial Centers in appropriate places
which will ultimately promote Economic Development. In short, the Mixed Use
Employment & Commercial Centers designation is designed to implement the City's
strategy to attract specific "target businesses," minimize urban sprawl, provide
City of Ocoee
Evaluation and Appraisal Report
employment opportunities in close proximity to affordable housing, and to promote smart
land use strategies. Significant topics for this issue include Mixed-Use, Special Overlay
Areas, Interchange Impact Areas (liAs), Downtown Redevelopment Area, Activity
Centers, Northwest Ocoee Sector, Senate Bill 360 and Form Base Codes.
IMPACTS OF THIS ISSUE ON THE CITY OF OCOEE
Creating urban places requires examination of land uses in areas appropriate for
intensification. Areas of the City where potential Mixed Use Employment & Commercial
Centers will be evaluated include the Comprehensive Plans' Special Overlay Areas. The
Special Overlay Areas currently consist of Interchange Impact Areas (liAs), the
Downtown Redevelopment Area, and Activity Centers.
Special Overlay Areas
While most of the City of Ocoee will see land develop similar to that observed in the
recent past, there are certain areas that will see considerable growth and other certain
areas that will need special attention to promote growth, which shall be termed "Special
Overlay Areas". Per the adopted Comprehensive Plan, these areas will require "Special
Development Plans" in order to provide a framework for future development. These
Special Development Plans, namely, Interchange Development Plan, the Downtown
Redevelopment Plan, and Activity Center Plan, shall be prepared by the City in
cooperation with the land owners having properties situated within these Special Overlay
Areas to ensure that most feasible use of these lands.
In 1998, the City adopted the "Ocoee State Road 50 Activity Center Special
Development Plan", which incorporates the Good Homes Road, West Oaks, Minorville,
and Lake Bennett Activity Centers. The Land Development Code requires all
developments within the Special Overlay Areas to be consistent with each Special
Development Plan. However in 1999, the design standards promulgated in the Special
Development Pan were later incorporated into the City's Land Development Code for
city-wide implementation.
Since the adoption of the City's Comprehensive Plan in 2002, there has been no other
Special Development Plan proposed or adopted. The EAR will evaluate the reason for
no Special Development Plan being adopted since the provisions were incorporated into
the Plan. Furthermore, the EAR will explore the possibilities and challenges of adoption
of Form-base Codes as the implementation tool for guiding development in the special
overlay areas.
Form-Base Codes provide for a method to regulate the visual form of development
through clear graphic prescriptions. It is an alternative to conventional land use
regulations that focus on controlling the use of land. The codes are used to achieve a
specific urban form based on a community vision by regulating the physical form (the
desired physical characteristics) of what is built on the land - the buildings and how they
relate to one another and to the appearance and quality of the public realm, such as
streets and sidewalks. Form-based codes allow the use of a building to change over
time (for example, a warehouse that becomes loft apartments), which encourages
reinvestment and provides a landowner or developer greater flexibility in meeting
changing real estate markets. For instance, if a building's size, form, and placement
conform to the community's vision, as described in the form-based code, a developer
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Evaluation and Appraisal Report
may have the flexibility to build a variety of uses. Form-based codes can replace the
existing zoning for the affected area or can be established as an overlay zone that
supersedes the underlying code.
- ~~-
Interchange Impact Areas (liAs)
Interchange Impact Areas (liAs) are areas that will provide access to expressways that
generate high volumes of trips and convenient access to the Orlando International
Airport, industrial and commerce parks to the south and east, Florida's Turnpike, the
East West Expressway (SR 408), and downtown Orlando. Through these liAs, the City
of Ocoee will evolve into a transportation-hub of regional significance.
Existing Interchange Impact Areas (liAs) include the following locations: 1) the
interchange of the Western Expressway and Ocoee Clarcona Road, 2) the Western
Expressway and West Franklin Street (Silver Star Road SR 438), 3) and the Western
Expressway and SR 50. Map 7 identifies the Interchange Impact Areas.
Map 7. I nterchange Impact Areas
Per the City's Comprehensive Plan, development of mixed and multi-use projects will be
encouraged in these areas to reduce the impact on the transportation network. Those
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Evaluation and Appraisal Report
Plans that promote the locations of regional employment & commercial centers shall be
considered first and foremost.
The specific boundaries of each Interchange Impact Area will be determined at the time
-- -~ each~ overlay area-is-formally aaopteCl and-snair-inClude all-!;:fn-d-within--arle-ast a one-=-
quarter mile radius of the interchange area. Projects shall be encouraged to provide a
development compatible with the adjacent uses proposed in the Interchange Impact
Area.
Since the adoption of the City's Comprehensive Plan in 2002, there has been no Special
Development Plan proposed or adopted for the Interchange Impact Areas. The City will
take the opportunity to establish a boundary for Employment & Commercial Centers that
incorporates Form Base Codes in order to implement the objective and policies of the
special overlay Interchange Impact Areas.
Downtown Redevelopment Area
Economic development activities should provide economic stability for the City and
meaningful jobs for residents in the workforce. The objective of the Downtown
Redevelopment Area (DRA) is to attract reinvestment in the downtown area of Ocoee.
Through flexible land development regulations and codes, innovative designs, such as
on-street parking, pedestrian ways, and mixed and multi-use scenarios will be promoted.
Density allowances, among other incentives may be offered to developers to attract
them to the area.
Map 8 - Downtown Redevelopment Area
Downtown redevelopment can benefit the City by increasing the tax base. Benefits to
residents include increased property values, a unique visual and pedestrian experience,
and opportunities to live and work within the same community, and economic viability to
those who own property within the area. Proposed development schemes should include
City of Ocoee
Evaluation and Appraisal Report
visual landmarks and public areas; quality pedestrian areas; mixed and multi-uses,
including retail, general commercial, restaurants, various forms of residential uses, and
professional offices and services. Within the DRA, pedestrian travel shall be encouraged
by guiding the use and setbacks of buildings, and street and sidewalk design. Buildings
should be close to the street and include retail and restaurant on the first floor.
Sidewalks should include benches and landscaping. The street design should provide
for well planned corridors which are aesthetically pleasing and pedestrian oriented.
In order to provide needed development controls and to capture TIF (Tax Increment
Financing), a Community Redevelopment Agency (CRA) should be formed by the City to
spur redevelopment in the downtown area. Map 8 identifies the Downtown
Redevelopment Area for the City. The City will also take the opportunity to establish a
new zoning classification of Mixed-Use in order to implement the objectives and policies
of the Downtown Redevelopment Area. Lastly, a Form-base Code designed specifically
for redevelopment of the historic downtown should be adopted.
Activity Centers
The adopted Comprehensive Plan defines Activity Centers as those areas within the
impact zone of major intersections. In other words, these are major nodes of
employment within the City which should include residential and support commercial
land uses. Mixed andlor multi land use and pedestrian as well as transit travel are
emphasized in the design of these Centers.
To achieve this mixed- andlor multi-use scenario, which allows for ancillary and
compatible uses, priorities within these Centers may obtain waivers from standard
zoning and Land Development codes where a coordinated pattern of development
further enhances the goals established for each Activity Center. Setback allowances and
increased floor area ratios are two mechanisms that may be considered within the
Activity Center plans.
Specifically, these Activity Centers encourage residential areas that contain a mix of
housing types and densities. Retail, service and recreational facilities shall also be
integrated within these areas. Non-residential areas shall establish the hub and the
focus of the area. Retail and service establishments, including day care centers,
government buildings, and cultural centers should also be included within the Centers.
These mixed and multi-use centers will be at the intersection of Clarke Road and Silver
Star Road (SR 438), at the intersection of Blackwood Avenue and SR 50 (Health
Central), the intersection of Clarke Road and SR 50, the intersection of Good Homes
Road and SR 50, and the intersection of Bluford Avenue and SR 50. Map 9 identifies the
established Activity Centers for the City.
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Evaluation and Appraisal Report
The Silver Star Activity Center boundary includes all properties within at least onequarter
mile radius of the Activity Center's main intersection and any parts of any subdivision or
parcels within at least one-quarter mile radius as well as any logical extension beyond
that boundary. The boundary will be determined based on the logical pattern of
development or expansion, which would relate certain properties directly related to the
Activity Center.
The Special Development Plan was developed to foster distinctive development and
maintain Ocoee's small town character along the State Road 50 corridor Florida's
Turnpike to Good Homes Road. The Special Development Plan established four (4)
goals for the SR 50 corridor, as follows:
1. Ensure distinctive, quality, integrated development in the corridor.
2. Mitigate the impacts of development by setting strict site design criteria.
3. Emphasize mixed- and multiple-use projects that encourage synergy between
a variety of land uses.
4. Promote flexibility, design innovation, and unique development in those cases
where a coordinated pattern of development further enhances the goals and
key criteria established in the Special Development Plan.
As stated above, in 1998, the City adopted the "Ocoee State Road 50 Activity Center
Special Development Plan", which incorporates the Good Homes Road, West Oaks,
Minorville, and Lake Bennett Activity Centers. However in 1999, the design standards
promulgated in the Special Development Plan were later incorporated into the City's
Land Development Code for city-wide implementation.
This adoption into the Land Development Code caused some unanticipated
consequences. For instance, the upgraded development standards were "suburban" in
City of Ocoee
Evaluation and Appraisal Report
character with large setback requirements from the roadways. This often promoted the
location of parking and stormwater facilities in the front of the buildings and promoted the
use of automobiles instead of other means of transportation. The City should consider
amending the "SR 50 Activity Center Special Development Plan" in order to implement a
new targeted overlay plan which incorporates "urban" design standards. The "urban"
design standards should be promulgated using Form-Base Codes.
The City should take the opportunity to establish a new zoning classification of Mixed-
Use and specifically designed Form-base Codes in order to properly implement the
objectives and policies of the Activity Centers. Finally, the City should explore the
possibilities of amending or even rescinding the Silver Star Activity Center due to the
lack of original character and almost built-out condition.
City of Ocoee
Evaluation and Appraisal Report
HOW THE COMPREHENSIVE PLAN RELATES TO THIS ISSUE
The Comprehensive Plan in the Future Land Use Element, Transportation Element, and
Conservation Element provides objectives and policies that address the issue of Mixed
Use, Redevelopment, and Special Overlay Areas (SOAs). These objectives and policies
are as follows:
Future Land Use Element
Objective 1: The development of land shall be regulated to ensure that newly
developed property and redeveloped property is compatible (meaning, not in
direct conflict with uses with regards to specific zoning categories, density and
intensity) with adjacent uses and natural features and resources including
topography, vegetation, and soil conditions (9J-5.006 (3)(b) (1), FAC).
Policy 1.4: The City shall allow mixed and multi-uses in the Special
Overlay Areas (SOAs) which include the Downtown Redevelopment
Area, Interchange Impact Areas, and Activity Centers, and shall use strict
design criteria to provide an attractive appearance and to offset negative
impacts, sprawling development patterns and the proliferation of strip
commercial development (9J-5.006 (3)(c)(5), FAC).
Policy 1.7: The land development regulations shall promote innovative
development in those cases where a public benefit can be realized and
impact can be offset by the development, as follows:
. Utilize Planned Unit Development zoning to allow for mixed uses
and unconventional development designs in those cases where
the developer can demonstrate improved living environments,
protection of natural resources or increased effectiveness of
service delivery; and
· Provide development standards that create useable open spaces
in new developments (9J-5.006 (3)(c)(5), FAC).
Objective 2: To provide adequate services and facilities to newly developed or
redeveloped property and to protect the ability of those services and facilities to
function properly. These services and facilities shall be provided in an
economically feasible manner, as outlined in the Infrastructure Element Sub-
elements, and shall be provided in a manner to discourage urban sprawl (9J-
5.006 (3)(b)(8)&(9), FAC).
Policy 2.6: In order to utilize existing facilities efficiently, the City shall
encourage infill within developed areas. Promoting development can be
accomplished through the provision of economic and regulatory
incentives. Such incentives may include floor area ratio credits,
streamlining the permitting process for development proposals within
these areas, zoning variances on building setbacks, side yard and
parking requirements and allowing sufficiently higher densities to make
investment profitable and affordable housing possible.
Policy 2.10: The City shall complete a study of all areas where blighted
conditions (including drainage and infrastructure inadequacies) may
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Evaluation and Appraisal Report
occur. The results of this study will become support material for any
Community Redevelopment grants the City may submit.
Objective 3: The City shall adopt and implement plans and programs for
Interchange Impact Areas, the Downtown Redevelopment Area, and Activity
Centers as determined by the City Commission to meet the criteria established
by Chapter 163, Florida Statutes to encourage Planned Unit Developments and
mixed and multi-use developments (9J-5.006(3)(b)(2) and (10), FAC).
Policy 3.1: The City may require special development plans for
Interchange Impact Areas, the Downtown Redevelopment Area and
Activity Centers when such plans are needed to effectively coordinate
development among multiple projects.
Policy 3.2: The City shall implement land development regulations that
put in place mechanisms that will allow for mixed and multi-uses in
development plans.
Policy 3.4: The City shall develop mixed use zoning provisions within the
Land Development Code which shall provide for the implementation of
new "mixed/multi uses within a variety of higher intensity land use
categories where the overall impacts of development are determined to
be no greater than those that would otherwise result from that permitted
by underlying land uses. This ordinance shall provide for such items as
internal circulation, compatibility of adjacent uses, functional relationship
between mixed uses, provisions of open space and public amenities, and
consistency with all requirements of the City's Comprehensive Plan (9J-
5.006(3)(c)(5), FAC.
Objective 4: The City shall encourage the redevelopment and renewal of
blighted areas by offering incentives to developers (9J-5.006 (3)(b)(2), FAC.
Policy 4.1: The City shall support the redevelopment of the downtown
area by providing preferential incentives, conducting special studies, and
encouraging the centralization of commercial, governmental, retail,
residential, and cultural activities.
Transportation Element
Objective 1.3: The City shall direct the location of growth through the provision
of multi-jurisdictional transportation facilities that are consistent with and enhance
existing and planned uses.
Policy 1.3.3: The City shall ensure transportation improvements that
enhance the function of planned activity areas.
Policy 1.3.4: The City shall continue to coordinate transportation planning
with future population densities, the location of future housing
developments and development patterns, and future employment centers.
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Evaluation and Appraisal Report
Objective 2.4: The City shall place renewed emphasis on Ocoee's traditional
downtown area through improved access for all modes of transportation.
Policy 2.4.1: The City shall promote increased parking in the downtown
area.
Policy 2.4.2: The City shall ensure streetscape improvements that
accommodate pedestrian activity and encourage the use of transit.
Conservation Element
Objective 1: The City of Ocoee shall continue to meet or exceed the minimum
air quality standards established by the Florida Department of Environmental
Protection, by ensuring that new developments at least maintain the current
standards. This shall be accomplished through the policies which follow (Chapter
187.201, 11(a), and 11(b)1-5, FS; 9J-5.013(2)(b)1, FAC).
Policy 1.4: The City shall encourage the use of innovative development
forms, such as planned unit developments, multi-use centers, and others
to reduce the need to travel. Incentives such as density bonuses and
transfers of development rights shall be used to encourage these forms.
The intent and direction of the objectives and policies within the adopted Comprehensive
Plan provided general incentives for mixed and multi-uses in the Special Overlay Areas
(SOAs) and redevelopment activities within the City. However, the objectives and polices
are rather vague and do not provide a comprehensive, targeted, and aggressive
approach for encouragement and promoting more local economic development to occur.
Moreover, there are no goals, objectives or policies that promote economic
development. By providing more specific policy guidance and coordination within the
Comprehensive Plan for Mixed-use Employment & Commercial Center, Special Overlay
Areas, infill and redevelopment opportunities, the City will be able to take full advantage
of a strong economic market within the region.
City of Ocoee
Evaluation and Appraisal Report
IDENTIFICATION OF UNANTICIPATED CHANGES ON THIS ISSUE
Unanticipated significant changes on the issue of Mixed Use Employment & Commercial
_ Centers inc~d~he c~_atio!'l of the g~y~Com"!:lun~y Redevelopment Agency (CRA), the
Northwest Ocoee Sector Study and Senate Bill 360. ~ - ~ - - - - ---
Community Redevelopment Agency
The establishment of the City of Ocoee Community Redevelopment Agency (CRA) in
2006 was not anticipated in the adopted Comprehensive Plan. The CRA was
established to promote the economic revitalization of the SR 50 Commercial Corridor.
The activities of the CRA since its inception, including the CRA Community
Redevelopment Plan, need to be evaluated within this EAR.
The Ocoee Community Redevelopment Plan is intended to serve as a framework for
guiding development and redevelopment within the Community Redevelopment Area.
The Redevelopment Plan is to document a strategy for the Community Redevelopment
Agency (CRA) to facilitate a comprehensive revitalization of the designated
redevelopment area.
The Community Redevelopment Plan provides a legal description and physical
information on the redevelopment area, identifies potential projects that can diminish or
eradicate blighted conditions, and establishes a legal framework for a series of specific
programmatic policy actions that advance these projects. Furthermore, the Plan provides
for an economically sustainable, accessible, and attractive mixed-use area that offers
visitors and residents a high quality local destination with a safe transportation network,
pedestrian connections and public space/recreation facilities in a manner that promotes
a positive image for the City of Ocoee.
Map 10 - Boundary Map of the CRA
City of Ocoee
Evaluation and Appraisal Report
The City of Ocoee Community Redevelopment Agency is located within the core and
along SR 50, as shown on Map 10. The CRA boundary, as described in the
_ r~development plan, covers approximately 1,070 acres located north and south of the
State Ro-ad 50 commercialcorriaor.-Moreover, tne -CRA -Iargelycovers-me same area~fs~
the previously approved "Ocoee State Road 50 Activity Center Special Development
Plan" referenced in the City of Ocoee Comprehensive Plan and Land Development
Code. Essentially, the CRA is supplanting the "Ocoee State Road 50 Activity Center
Special Development Plan." The City should consider amending the "SR 50 Activity
Center Special Development Plan" in its entirety in order to implement the Community
Redevelopment Plan.
Northwest Ocoee Sector Study
In 2006, the "Northwest Ocoee Sector Study" was completed by Renaissance Planning
Group. The purpose of the Northwest Ocoee Sector Study was to prepare a market-
based assessment of alternative land use scenarios to define an economically viable
vision for the area. Ultimately, the goal was to develop a vision for the Northwest Sector
that reflects local priorities and sound economic strategy for the City.
To this goal, the Northwest Ocoee Sector Study builds upon unique conditions of the
study area that include the presence of SR 429 (Western Expressway) and its two
interchanges, which connects the Sector and the City to the broader Central Florida
region; a shift in demographics as a result of higher paying jobs and improving access to
regional employment centers, evidenced by the presence of new, upscale residential
subdivisions; and the gradual transformation of Lake Apopka into an attractive natural
amenity. Those conditions favor the Northwest Sector's emergence as an important
gateway to the City of Ocoee with more diverse land uses fitting the area's changing
character.
Map 11 - Northwest Sector Study Area
City of Ocoee
Evaluation and Appraisal Report
Map 11 identifies the locations of the Northwest Sector Study Area. As illustrated in the
study area is located near several other municipalities, including the cities of Winter
Garden to the west, Apopka to the north, and the remainder of the City of Ocoee to the
south and east. Lake Apopka, located northwest of the study area, provides a natural
boundary to the City. The study area boundaries are: the SR 429/Western Expressway
to the north, Silver Star Road to the south, East Crown Point Road and Lake Apopka to
the west, and Lakewood Avenue to the east. The area is roughly 4.8 square miles, or
3,300 acres, and comprises roughly one-quarter of the City's land area.
The area's current function in a regional context is that of fulfilling the demand for
residential, suburban neighborhood-related uses. Should Ocoee desire to dramatically
change the destiny of the Northwest Sector, it must carefully examine what changes are
feasible and desirable based on an examination of existing and future infrastructure
needs and costs, market potential and community input.
In short, the Northwest Ocoee Sector is facing development pressure to change the
existing land use pattern from the primarily low density residential to non residential uses
and more intense development. These development changes will require upgrades and
improvements in transportation as well as water and sewer facilities. In addition, there
was a market based assessment of the alternative land use scenarios to define a vision
for the area that is economically viable for Northwest Ocoee Sector Study. In order to
address these changes, the City will explore the possibilities of delineating Mixed Use
Employment & Commercial Center on the Northwest Ocoee Sector. Furthermore, the
EAR will take the opportunity to establish a zoning classification where applicable for a
"Mixed-Use" designation and a Form-base Code in order to implement the objectives
and policies of the Special Overlay Areas.
Senate Bill 360
Transportation Concurrency Exception Areas
The concentration of density and intensity of uses to provide for an economically viable
and vibrant development project may result in traffic generation that would exceed
adopted level of service standards. In addition, the impacted roadways may be
exceeding their adopted level of service due to pass-through traffic and widening, or
other capacity is not feasible due to physical or financial constraints. A potential solution
to this problem is the implementation of a Transportation Concurrency Exception Area
(TCEA). Senate Bill 360 allows for the creation of such transportation concurrency
exception areas.
Senate Bill 360 (SB 360), named the Community Renewal Act, was signed into law on
June 1, 2009. The intention of SB 360 is to direct growth into "dense urban land areas"
by removing State mandated concurrency requirements within those areas. According to
a list published by the Florida Department of Community Affairs, the City of Ocoee meet
the criteria under the new state law as a "dense urban land area" which can be
exempted from state review for adequate roads to accompany development. Moreover,
"home rule" is still preserved in this Bill. This allows local governments to implement
concurrency development review process under the adopted Comprehensive Plan
Concurrency Management System. The City of Ocoee will have to amend the
Comprehensive Plan in order to implement a Transportation Concurrency Exception
City of Ocoee
Evaluation and Appraisal Report
Area (TCEA). The City of Ocoee will also have to consider the delineation of each
TCEA(s) or even an implementation of a city-wide TCEA. The later is not recommended
since local governments are still responsible in establishing a mobility plan that
_ add resses _multi m o_d_a lJa_cjJjtLe_s , _s~JV'iceJU3D<:lJi naj1ci ng,--_~
- _._-~ -. ---
Map 12 - Potential TCEA(s)
TCEA(s) would be specifically defined for certain areas (Special Overlay Areas,
Interchange Impact Areas, Activity Centers, Downtown Redevelopment Area, and the
Mixed-Use Employment & Commercial Centers) that has or is planned to have in place
viable alternative modes of transportation (Le. walking, bicycling, mass transit, etc.)
services, and financing. The predominant requirement is that the City must send to the
DCA a copy of their orders granting development approval for what would otherwise
have been DRI(s). Nevertheless, the Comprehensive Plan needs to be amended to
City of Ocoee
Evaluation and Appraisal Report
reflect the provision of SB 360 dealing with Transportation Concurrency Exception
Areas.
Development of Regional Impact (DRI)
The designation of TCEA(s) is important in the City of Ocoee because of provisions in
SB 360 dealing with Development of Regional Impact (DRI). SB 360 indicates that DRI
analyses are not required in designated TCEA(s). There are only two (2) existing
approved DRls in the City of Ocoee, namely, Lake Lotta Mall and Lake Lotta Center.
The locations of these two DRI(s) are on the "West Oaks Activity Center" in the "Ocoee
SR 50 Activity Center Special Development Plan." Pursuant to 380.115 F.S., these two
DRI(s) can continue to abide by their existing Development Order (DO) or the
developer/owner can request to the City rescinding the DO. Nonetheless, DRI(s) would
still be subject to the transportation mitigation requirements from the City of Ocoee
Comprehensive Plan and Land Development Code. The City should anticipate any
rescinding and consider the implications of any outstanding transportation improvement
obligations specified in the existing DO.
City of Ocoee
Evaluation and Appraisal Report
IDENTIFICATION AND ANALYSIS OF PROBLEMS OR OPPORTUNITIES
THAT HAVE RESULTED FROM THIS ISSUE
Special Overlay Areas, Interchange Impact Areas (liAs), Downtown
Redevelopment Area and the Northwest Sector
The City of Ocoee's Comprehensive Plan designated two Interchange Impact Areas
(liAs) along the Western Expressway in the Northwest Sector. These liAs are significant
because the Western Expressway is part of a larger system that will eventually evolve
into a Beltway around central Florida. The City has specified some guidelines as to the
type and style of development that can occur in the IIA. Developments of mixed and
multi-use projects are to be encouraged, as are developments that will reduce the
impact on the transportation network.
The northern IIA, located at the interchange with West Road, is identified as a mixed-use
employment/commercial district intended to provide a regional function due to its
location off the interchange. The location near the Crown Point PUD and Western
Expressway, and the other assets of the area, give this IIA a unique advantage in
determining its destiny. The Special Overlay Plans builds upon these guidelines and
recommends that each IIA adopt a unique character and function. The City should
explore the opportunity of designating the northern IIA into an Employment &
Commercial Center.
The southern IIA is located in an older, industrial district that is ready for redevelopment.
The existing street network and its location as part of "old Ocoee" lends itself to a unique
type of redevelopment. This area is no longer an ideal industrial node, as the market for
industrial has evolved and has different needs in terms of parcel sizes and land costs.
The area would be well suited for a "craftsman" district - a light industrial-based, mixed-
use area serving artisans and crafters as a place to live, create product and sell product.
This area would appeal to a wide market area, particularly as West Orange County is
growing quickly and this niche would serve a residential market.
Nevertheless, the Comprehensive Plan needs to be amended to provide a strong focus
and emphasis on the infill and redevelopment needs and opportunities within the City.
Future Land Use Element Objective and the supporting policies need to be re-crafted
and enhanced to reflect the significant amount of analysis and study that has occurred
within the City's overlay areas and future employment centers.
Mixed-Use Employment & Commercial Centers Future Land Use Designation
While not a specific land use category, mixed and multi-use types of development are
characterized by the mix of two or more distinct land uses. Different underlying land uses
may be reshaped or melded within mixed and multi-use forms of development permitted
in master planned developments zoned under the Ocoee Planned Unit Development
(PUD) District as long as overall development impacts do not exceed those than would
otherwise result from permitted development intensities.
In addition, mixed and multi-use developments are dependent on the successful
integration and blending of these distinct uses together in order to create a functioning,
multi-faceted type of development. Integration is defined as the combination of distinct
City of Ocoee
Evaluation and Appraisal Report
uses on a single site where impacts from different uses are mitigated through site design
techniques, and where different uses are expected to benefit from the close proximity of
complementary uses. All requests for development approval based on a mixed use
concept must be able to demonstrate functional horizontal integrations of allowable
uses, and where applicable, vertical integration as well. Mixed and multi-use
developments are recommended in Interchange Impact Areas, the Downtown
Redevelopment Area, Activity Centers, Employment and Commercial Centers or any
other appropriate areas within the City.
A more effective balance between residential and non-residential uses is possible. The
City could achieve more land use diversity without losing its residential character through
greater application of mixed-use future land use categories. This category could allow for
increased commercial, office, and retail uses, while at the same time providing increased
residential development opportunities in the form of multi-family, condo, and apartment-
style residential options. A mixed-use FLU category can also provide a buffer between
areas of high and low densities and use intensities. The City currently utilizes no FLU
category as a buffer between areas of differing intensity.
While the City still has a number of large vacant tracts of land left, there are a
considerable amount of smaller parcels located throughout the City. These vacant
parcels are mostly located east of SR 429, and the Downtown Redevelopment Area.
The focus of these vacant smaller parcels should be on. mixed-use and infill
development.
Some of these parcels have the potential to be designated as mixed-use, but would not
meet the assignment criteria for the Planned Unit Development (PUD) classification. In
some instances the parcels are already classified with a FLU category of eighter
"Commercial" or "Low Density Residential" (LDR). However, the Commercial FLU
category negates the possibility for residential uses and the LDR negates the possibility
for commercial. The ideal location for mixed-use designations would be along the
Downtown Redevelopment Area, IIA, Activity Centers, and the newly created
Employment & Commercial Centers. The City should reevaluate the FLU designation of
certain areas and a new zoning designation should be adopted to implement this goal.
The Mixed Use Employment & Commercial Center Land Use Designation is designed to
implement the City's strategy to attract specific "target businesses," minimize urban
sprawl, provide employment opportunities in close proximity to affordable housing, and
to support alternative transportation strategies. This land use is specifically designed and
located to:
a. Ensure that higher-density, residential development and affordable housing is
within close proximity to employment centers;
b. Maintain compatibility by providing a transition of land use types, densities,
intensities, and heights to buffer existing neighborhoods from nonresidential
areas;
c. Discourage urban sprawl by clustering targeted employment generating uses
within employment centers along major transportation corridors;
d. Promote the development of target businesses that will provide jobs in close
proximity to the City's existing residential areas, support future mass transit
City of Ocoee
Evaluation and Appraisal Report
systems, and make the most efficient use of the City's substantial investment in
infrastructure and services; and
e. Promote target business development in close proximity to the regional road
n~etwork, providing high-visibility and cOnvenientaccess.-
Map 13 - Potential Employment & Commercial Centers
Form Base Codes
The design standards for Special Overlay Areas including Mixed Use Employment &
Commercial Centers employ several fundamental urban planning and design concepts.
These concepts do not necessarily change the mix of land uses currently allowed in
Ocoee, but provide guidelines on how permitted land uses should be organized and how
they should look.
Design standards should ensure that proposed developments help achieve the overall
vision for Special Overlay Areas. Each site plan submitted in the Special Overlay Areas
should demonstrate an appropriate relationship with surrounding neighborhoods. The
design along the edges of the site should be compatible in scale and appearance with
adjacent uses. Just as important, however, is that the site be well integrated into
surrounding areas and not be designed with barriers to isolate it from nearby
City of Ocoee
Evaluation and Appraisal Report
developments. This makes it easier for the pedestrian friendly environment created on
the site to extend into adjacent areas. To ensure efficient traffic flow, curb cuts shall be
restricted in these areas.
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Figure 6 - Potential Form-Base Codes
The plans should recognize several "place-types" for each specific special overlay area.
A series of form-based "place-types" provide guidance on what development in the
overlay areas should look like. Each place type has its own set of land uses and
development standards. This approach provides more flexibility in permitted land uses
and less flexibility in design and character. Therefore, adoption of specific Form-Based
Design Standards applicable to each individual "Special Overlay Areas" should be in
order.
Economic Development
The City of Ocoee Comprehensive Plan did not adopt an Economic Development goal or
objective in its Future Land Use element. The focus of local economic development is to
create a balanced, diversified, robust economy that will attract businesses that provide
City of Ocoee
Evaluation and Appraisal Report
high paying jobs for the citizens of Ocoee. Economic activities provide jobs, goods, and
services, and contribute to City revenues. Because of the importance of economic
activity, the City of Ocoee will support economic development through mixed-use
Activity, Employment and Commercial centers, the expansion of existing businesses,
and by creating a climate conductive to economic growth.
. New Business Incubators
. Business Assistance Centers
The City of Ocoee will ultimately need to adopt an economic development strategic plan.
The plan should spells out a number of goals and initiatives to spur economic
development in the City. The local economic development strategy plan will take into
consideration employment, development base, location assets, and knowledge
resources.
The economic development goals, objective and policies should center on: Coordinate
efforts with allies and leaders; Diversify the tax base through innovation, industry
attraction, and business development; Enhance and promote quality of place; Develop,
retain, and attract talent. In addition, the plan should identify target industry sectors that
the City of Ocoee should try to attract, including:
. Medical, Health & Wellness;
. Education Satellite Campuses;
. Clean Tech;
. Industrial;
. Business Services.
The City of Ocoee shall encourage development which will contribute more to the City in
revenue than it will consume in services, provided that such development can be
accomplished within the spirit of the Comprehensive Plan.
City of Ocoee
Evaluation and Appraisal Report
IDENTIFICATION OF REQUIRED AMENDMENTS TO THE COMPREHENSIVE
PLAN THAT ADDRESS THE RELATED PROBLEMS AND OPPORTUNITIES
The comprehensive plan needs to be amended to create a Future Land Use Element
that contains specific language on how Employment & Commercial Centers can be
effectively made a part of the future local economic development engine. The City
should take a proactive stance in bringing about this transformation. The following list
identifies proposed amendments to the City's Comprehensive Plan:
. Add an Economic Development objective that provides for incentives for Mixed-
Use developments that promote smart land use strategies
. Policies should be added to address Mixed-Use Employment & Commercial
Centers
. Add Mixed-Use Employment & Commercial Centers as a "Special Overlay Area"
. Provide a definition for Mixed-Use Employment & Commercial Centers
. Set the criteria for establishing Mixed-Use Employment & Commercial Center in
appropriate areas of the City
. Delineate possible boundaries for Mixed-Use Employment & Commercial Center
on the FLU Map
. Adopt specific Form-Based Design Standards applicable to each individual
"Special Overlay Areas"
. Provide for a Mixed-Use FLU designation in appropriate areas on the FLU Map
. Amend the existing definition for Mixed-Use in the FLU Element to include
Employment & Commercial Centers
. Amend the Land Development Code to include zoning classification and
standards to implement the Mixed-Use FLU designation
. Establish a Density and Intensity standard for the Mixed-Use FLU designation
(Policy 1.10)
. Policies should be added that require the City to investigate and consider the
implementation of Transportation Concurrency Exception Area, consistent with
the requirements of Florida law (2009 SB 360)
. Policies should be added that the City can grant concurrency exceptions for
development proposals that are qualified by the Office of Tourism, Trade, and
Economic Development (OTTED) as "job creation projects", consistent with the
requirements of Florida law (2009 SB 360)
. Add special incentives such as: encouraging and/or requiring portions of the
projects for workforce education, business incubators, vocational (shadowing)
programs with the High School, Voc. College etc.
. Identify target industry sectors for the Mixed Use Employment & Commercial
Centers (ex. Clean Tech, Medical, Business Services, etc.)
. Policies should be added that require the consideration of incentives within the
Land Development Code for expedited or priority plan review and permit fee
adjustments to promote redevelopment activities within targeted areas of the
City's infill and redevelopment areas.
City of Ocoee
Evaluation and Appraisal Report
MAJOR ISSUE # 5: NEIGHBORHOOD REVITALIZATION AND HOUSING
STATEMENT OF MAJOR ISSUE
Although housing is a primary focus of the discussion, "neighborhood" is actually more broadly
defined to include residential, commercial, and public uses that form a recognizable geographic
unit of the city. Each viable neighborhood must have the commercial and public support
facilities needed to provide a complete sense of place.
The City of Ocoee presents a dichotomy of older housing in its center and newer housing
around that core. As new developments were built around the historical center of the city, that
core itself remained devoid of new investment. The resulting economic separation between
new and old areas of the city is also expressed through socioeconomic isolation. A significant
proportion of the central part of the city remains undeveloped, in large measure due to a lack of
urban services, like sanitary sewer and stormwater management systems. No significant
commercial activity center exists in the older part of the city.
In this context, it is not surprising to find that the older housing stock has received little
reinvestment. Redevelopment of the older central residential areas and urban infill to create a
neighborhood activity center in the center of the city are critical needs. Both actions are blocked
by a lack of utility infrastructure, particularly sanitary sewers. The City will evaluate within this
major issue whether the comprehensive plan has adequate policies to integrate housing types
and target redevelopment as a strategy to motivate neighborhood revitalization.
The major issue presented by housing goes beyond the need to revitalize selected
neighborhoods by extending to the need for multi-generation residential land uses across the
city. As aging in place becomes the lifestyle norm and families grow to spread across more
than two generations, it is imperative that the city ensures its policies actively support the ability
of families to remain in their traditional home and allow that home to grow as the family
changes. The City will evaluate within this major issue whether the comprehensive plan has
adequate policies to support aging in place and multi-generational families as a strategy to
ensuring that people are not required to move in order to care for themselves and their families.
ISSUE BACKGROUND AND ANALYSIS
Where the city was once an extension of Winter Garden's citrus processing hub, it is now a
suburban residential outpost of the Orlando metropolitan area with no new identity to replace
the old one. Former citrus groves have been abandoned and are being converted into single-
family detached subdivisions. However, those subdivisions have no connection to the historical
use of the land. The result is that new residents have no social foundation by which to anchor
their participation in the community. Economic, lifestyle, and household composition differences
between the center of the city and the surrounding suburban development are stark. Social
interactions between long-term citizens and more recent residents of the city are relatively
limited. Absent a central activity area where all residents of the city can interact, socioeconomic
groups will remain isolated.
Pressure of Population Growth
While it is normal for cities to grow outwardly, the rapidity by which residential growth occurred
in Ocoee and the lack of a traditional central business district exacerbate the problems of
City of Ocoee
Evaluation and Appraisal Report
suburban growth. Since 1990, when the city's population was 14,850, it has grown to include
almost 36,000 residents in 2009\ an increase of 142%. This rapid growth is directly the result
of transportation access. Initially, an extension of the East-West Expressway (SR 408) and the
construction of Clarke Road motivated the development of new subdivisions in eastern Ocoee.
Widening of Maguire Road and the widening and extension of Old Winter Garden Road brought
development to the southern part of the city. All but the extension of SR 408 was funded
primarily by the City of Ocoee. Construction of the Western Beltway (SR 429) and its
interchange at West Road allowed the northwest portion of the city to develop. Widening of
Clarcona-Ocoee Road, now underway with funding by Orange County, is poised to initiate a
new wave of residential development in the north-central part of the city. A large residential
subdivision is already in development review.
Chart 1. Population Growth in Ocoee, 1970-2009
40,000
35,000
30,000
c 25,000
0
+::l
nl 20,000
~
c..
0
a. 15,000
10,000
5,000
0
1970
1980
1990
2000
2009
Year
Transportation access was necessary but not sufficient to create the growth of Ocoee. None of
this development would have been possible without the water and sanitary sewer services
necessary to support the development densities present in modern residential subdivisions.
Concurrent with the transportation improvements, the City of Ocoee acquired and consolidated
private utilities and expanded them to support growth along the newly constructed or expanded
roads. Growth has actually exceeded the geographic capacity of the city to extend utility
service, with recent new developments in the extreme northern and southern sections of Ocoee
1 Note: The official population shown in Chart 1 for 2009 is from the University of Florida's annual
population estimate is based on an April 1 date and does not include the population of the Rose Hill
Subdivision annexed by referendum in September 2009.
City of Ocoee
Evaluation and Appraisal Report
actually being outside the city's utility service area. These areas are served by Orange County
Utilities as a result of an intergovernmental agreement.
The ability to expand further into unincorporated Orange County is also limited by the terms of
the Joint Planning Agreement with Orange County. However, large and numerous
unincorporated enclaves still exist within the geographic limits of the city, and many large
parcels remain undeveloped, even near major highway corridors. The question on which the
Comprehensive Plan focused is when development will occur, not if. The question of how the
land will be developed was also answered. The adopted Comprehensive Plan calls for virtually
all undeveloped parcels to be converted to low-density residential use, primarily through the
construction of new subdivisions. This future may no longer be a foregone conclusion.
A large influx of new residents usually results in a proportional increase in voters, with the
potential for changes in direction from earlier times. However, to a large degree, the more
recent residents of Ocoee have been significantly detached from the political process. The
subdivisions built in Ocoee look like those in most other Central Florida communities. The new
residents relocated to homes that happened to be built in Ocoee, but they did not move to
Ocoee. These newer residents expect the same urban governmental services provided by
larger cities. Historical pressures for lower taxes by long-time residents oppose the growing
pressures for increased governmental services by new residents. To the extent that newer
residents are less likely to be engaged in the political process, the low-tax perspective prevails.
There have, though, been some political impacts as a result of a large influx of new residents
from more urban areas. For example, parks and recreational services are being upgraded in
large part due to a growing demand for such benefits of suburban life. The existing recreational
facilities were typically built decades ago by largely volunteer forces and have received few
upgrades and limited maintenance in the subsequent years. Only in the last five years have
significant capital investments in recreational facilities been made, but most such projects have
been to rebuild existing facilities, not add new capacity.
The Problems of Unbalanced Growth
Although the influx of new residents has been the single most significant aspect of the city's
recent history, the issue of neighborhood revitalization arises not from the construction of new
residential subdivisions but from the lack of new commercial developments. A traditional focus
on development review has resulted in a reactive planning process that fails to proactively
create opportunities in the underserved central area of Ocoee. Beyond strip commercial
development along the SR 50 (Colonial Drive) corridor and two neighborhood activity centers,
there is no area that can serve as the city's "downtown." Lacking an identity that can be
discerned by the motorists who pass through Ocoee or the residents of other areas, it is
common for the city to be overlooked. For example, a recent map of Orange County published
in the Orlando Sentinel illustrating population declines in the last year noted that the City of
Ocoee had one of the few population increases, but it put the city in the wrong location and
included no discussion of the city's unique position in the region. This was not an unusual
event. Ocoee may be characterized as an invisible city of 36,000 persons-third largest in
Orange County-that is hidden inside a small town of 5,000 people.
As the foregoing suggests, the major issue of neighborhood revitalization and housing is the
result of all other major issues listed in this Evaluation and Assessment Report. A unique sense
of place does not exist, as recognized by the community character and design issue.
Transportation connectivity between cities is what fueled Ocoee's growth, but a lack of internal
City of Ocoee
Evaluation and Appraisal Report
circulation hampers the level of interaction among city residents and prevents the city from
taking advantage of its location on the state's transportation network. The lack of the utility
infrastructure required for more urban-like development patterns in the center of the city has led
directly to the location of new investment in outlying areas where such infrastructure can be
more cheaply provided. The present imbalance between residential and commercial
development is recognized in the major issue of mixed-use employment and commerce centers.
Even conservation is a related issue given the need to preserve the environmental aspects of
Ocoee that can protect both private investment and the natural assets that can serve as a
foundation for neighborhood revitalization. The city was built around a major natural asset-
Starke Lake, which is one of the top five fishing areas in the county-but there has been no
historical incorporation of that asset in the process of planning the city.
Beyond housing revitalization in the central area, the city must support multi-generational
housing throughout the community. While the concept of aging in place has begun to impact
the design of homes, it has not yet been incorporated into the design of the city. Walking to
nearby commercial areas is an objective of the mixed-use employment and commerce centers
section of this Report, but it is also a major strategy to revitalize neighborhoods and to provide
housing that will serve residents throughout the various stages of life. Increasingly, those
stages include housing multiple generations of a family at one site, either in the so-called
"mother-in-law suite" or in a detached accessory cottage that allows a more independent
lifestyle. Zoning laws that seek to limit residential development to relatively low density single-
family houses ignore the growing fact that many "single families" actually consist of three of
more generations. The resulting need for multiple dwelling units in a single-family development
is not presently supported by the city's zoning ordinance.
The evolving nature of families to include several generations-what some might characterize
as the return to traditional families-is not the only pressure for radical changes to the city's
zoning ordinance. Rules that once sought to "protect" residential areas from commercial
development now preclude the very type of mixed-use development that is understood to be the
foundation for a more socially interactive community that also supports walking and biking as
effective alternatives to automobile travel. Thus, a form-based approach to land use regulation
coupled with direct comprehensive plan application to identify compatible land uses is a logical
successor to the present exclusive zoning approach with numerous classifications now in the
Land Development Code of the City of Ocoee.
Regardless of their structure, land use regulations form a passive regulatory framework. In
addition to making the required regulatory changes, the City must move from being reactive to
the development plans proposed by the private sector to being a leader of those plans through
active investment in vital public infrastructures that steer growth to where it can be most
efficiently and effectively supported by the community. The City can best do so by
implementing a strong capital investment program that shows private-sector interests which
properties will support various types of development and densities. Such a program must be
clearly funded and reliably implemented for it to be effective, but the City's present revenue
structure will allow it to do neither. This means the City will have to work cooperatively with
private developers to leverage limited City funds for capital improvements. It also means
limiting future suburban residential developments, as they disproportionately impose demands
for city services relative to the revenues they generate.
Given this background and necessary future direction for the city, it is not contradictory to
conclude that the key to residential neighborhood revitalization is commercial development. It is
for this reason that the City's Community Redevelopment Authority (CRA) was established in
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Evaluation and Appraisal Report
the central area of the city and has concentrated its efforts on commercial infill development
along the SR 50 corridor that forms the southern border of the central city. Parallel with this
effort, the City ahs worked with Orange County to direct Community Development Block Grant
funds to reconstruct lower income neighborhoods in the central city. The City also provided
incentives for the construction of workforce housing on the northern edge of the central city, a
development that is nearing build-out condition.
Surrounded by major transportation facilities to the south and west, the central area of Ocoee
has the potential for exceptional transportation access. With Starke Lake and its well-developed
Lakeshore Park near City Hall serving as a focus for passive and active recreational
opportunities in the central city, improving local transportation connections to the long-distance
network will go far to encourage private commercial investment in the area north of the SR 50
corridor. The City has already begun to prepare for such transportation access by adopting the
Shared Space concept for local streets. This design philosophy is based on the principle that
local streets intended to support high levels of pedestrian and bicycle travel must look very
different from the high-speed arterials that connect cities if drivers are to act differently when in
areas that require higher levels of interaction with other travelers, motorized and non-motorized
alike.
Shared Space transportation design is consistent with form-based neotraditional neighborhood
design standards of the type being developed as a replacement for exclusive zoning in the CRA
area. Placing buildings closer to streets, providing separate facilities for pedestrian circulation,
and keeping parking from being the primary urban design element are aspects of both the
transportation and neighborhood design standards being implemented by the City. Clearly, the
City of Ocoee will look different from other Central Florida communities, which will go a long way
toward creating a unique "brand" that will create a stronger sense of place and facilitate
additional development investments.
Not all desirable commercial development looks like a mixed-use residential and shopping area.
Instead of continuing to convert agricultural land to other uses, the City must ask itself whether
preservation of some agricultural areas may be a better strategy for reasons other than direct
costs and revenues, particularly given the increasing desire for our food sources to be grown
closer to the place of consumption. In addition, the northern agricultural areas of the city, which
are now substantially dormant and slated for major new residential developments, are located in
the major groundwater recharge area of Central Florida. Keeping these areas under agricultural
uses will also contribute to the conservation goals of the City's comprehensive plan.
Accordingly, the City will explore ways to support and revitalize and revitalize agricultural land
uses and integrate them into the future land use element of the comprehensive plan. One such
way is to support the creation of community gardens, perhaps initially on city-owned property.
Another requirement is to recognize agriculture as a land use; the current comprehensive plan
and its implementing zoning ordinance both lack this perspective.
In order to be prepared to participate in those investment decisions rather than merely react to
them, the City has undertaken an internal reorganization that better integrates the various units
of City staff that are involved in the capital investment and development review processes. The
new Development Services Department brings together the formerly separate Planning,
Building, and Engineering Departments as a strategy for greater staff interaction. By including
the Capital I mprovement Program managed in the Engineering Division, this reorganization
produced a single organizational entity that can steer private and public investments.
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Evaluation and Appraisal Report
To start the process of better supporting neighborhood revitalization, the City has implemented
a Neighborhood Planning Program for the long-term analysis of this issue with an added focus
on:
. Sidewalks, housing rehabilitation, and blight removal through more stringent code
enforcements.
. Affordable housing and workforce housing.
. Compatibility of neighborhoods through place-making and character definition.
Evaluation of Existing Comprehensive Plan Policies
Just as the neighborhood vitalization and housing issue represents the results of all other listed
major issues for this Report, so, too, do all the various elements of the comprehensive plan.
Rather than list every policy of the comprehensive plan, it is more useful to identify the major
policies that impact neighborhood revitalization and housing. Under such a focused approach,
the logical place to start is the Housing Element.
Housing Element
The stated goal of the current Housing Element is "to provide safe, decent and sanitary housing
in suitable neighborhoods at affordable costs to meet the needs of present and future residents
of the city." The included 11 objectives are supported by 30 policies, several of which call for
the city to undertake various programs to identify and correct substandard housing, ensure that
special needs populations are adequately housed, and undertake various analyses. No such
programs actually exist, nor can they be implemented given the lack of revenue to fund them.
RECOMMENDATIONS
The City should consider amending its comprehensive plan in the following ways:
1. Incorporate inclusionary zoning.
2. Eliminate all zoning regulations and directly regulate land use through application of the
comprehensive plan.
3. Promote infill development by:
a. Expanding the provisions of the Downtown Redevelopment Area targeting
redevelopment, infill, and neighborhoods; and
b. Identifying new incentives for promoting infill development.
4. Create a neighborhood planning process that includes the following elements:
a. Identification and definition of Neighborhood Service Areas;
b. Definition of "healthy" communities; and
c. Short-term (5-year) and long-term goals for each neighborhood area.
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Evaluation and Appraisal Report
5. Evaluate the existing range of future land use categories and consider a transect-based
approach to neighborhood-specific land use planning.
6. Create a long-range capital improvement program that reflects recommendations
created in Neighborhood "Service Area" studies.
7. Integrate elementary students into the Neighborhood Planning Program.
8. Develop a partnership program that includes setting up a qualification program for
developers who could partner with the City on revitalization projects.
9. Develop a GOP series that addresses current practices relating to affordable housing,
including:
a. The public infrastructure strategy;
b. Expedited permitting; and
c. Community Development Block Grant Programs.
10. Create a new GOP series that addresses implementation of housing programs and
outlines a true affordable housing strategy, including inventory management.
11. If zoning regulations are retained, allow accessory cottages and secondary dwelling
units that can support multi-generational housing.
12. Eliminate those Housing Element programs that cannot be implemented due to revenue
limitations.
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Evaluation and Appraisal Report
MAJOR ISSUE #6: CONSERVATION
STATEMENT OF MAJOR ISSUE
The EAR will analyze existing conservation policies in the Comprehensive Plan for the
effectiveness in addressing the protection and conservation of wetlands, as set forth
under Rule 9J-5.013(3) F.A.C. and also the following:
a. Explore changing criteria on wetland systems to be inline with
SJRWMD and Orange County's requirements
b. Evaluate and implement the requirements of the Wekiva Study Area.
BACKGROUND
The City of Ocoee is a municipality located in West Orange County in the heart of
Central Florida. The City is approximately 14 square miles in area and has an estimated
population of 34,000. From the years of 2004-2007 the City experienced unprecedented
growth, mainly in the form of single-family housing units. The abundance of natural
amenities in the City contributes to an outstanding quality of life.
The City lies within three major drainage basins, the Wekiva River, Cypress Creek and
the Lake Apopka. The City is within an area called the Mt. Dora Ridge, which is
characterized by gently rolling hills, well-drained sandy soils, frequent lake depressions,
and solution sinks that usually contain water. Two ecological communities are present in
the City: pine flatwoods/hammocks/hardwood swamps, and sandhills or flowing water
wetlands. Summers in the area are long, hot and humid. Winters are generally mild with
the occasional cold front that has caused the temperature to dip below freezing. The
mean annually temperature is 75.25 degrees with approximately 48.7 inches of annual
rainfall.
The Conservation Element is one of the required elements of the Comprehensive Plan
and is intended to enhance and promote the conservation, use and protection of the
natural resources of the City. In doing this, the element establishes a plan and policy
direction regarding the conservation of natural resources in the City.
During scoping meetings, Conservation was deemed a major issue to be assessed in
the Evaluation Appraisal Report (EAR). Significant topics for this issue include
effectiveness in addressing the protection and conservation of wetlands as set forth
under Rule 9J-5.013(3) F.A.C., the exploration of changing criteria on wetland systems
to be inline with SJRWMD and Orange County's requirements, the evaluation and
implementation the requirements of the We kiva Study Area, establishment of an Energy
Conservation Program by the City of Ocoee in accordance with Florida Statute
163.3177(6)(d), and implementation of green design practices in current development.
SIGNIFICANT TOPICS
. Explore changing criteria on wetland systems to be inline with SJRWMD and
Orange County's requirements
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Evaluation and Appraisal Report
. Evaluate and implement the requirements of the Wekiva Study Area.
. Energy Conservation Program by the City of Ocoee
. Implementation of green design practices in current development
Current City prOQrams
. City of Ocoee Showerhead Exchange Program.
. No development permitted in any wetland and/or floodplain.
. Requirement of a 25-foot upland buffer from any wetland and/or 100-year
floodplain.
. City uses recycled asphalt products and crushed recycled concrete as road
building materials.
. POWR (Protect Ocoee's Water Resources).
. The City of Ocoee promotes the use of cisterns and rain barrels for gardening
applications.
. Conversion to LED lights in traffic signals.
. Xeroscape presentations to the general public to educate in water conservation.
. Promotion the reuse of treated effluent in the irrigation of parks and publically
landscaped areas.
. Flood damage prevention ordinance which prohibits development in flood zones.
. Wellfield protection program.
. Ocoee Boating Code which restricts the use of power boats on smaller lakes.
IMPACTS OF THIS ISSUE ON THE CITY OF OCOEE
The City has a very progressive program detailed in the Conservation Element that
protects wetland systems from the impacts of development. However, some of the
policies employed by the City in the preservation and protection of wetlands have been
found to be inconsistent with those that are employed by the St. Johns Water
Management District and Orange County. In addition to the aforementioned
inconsistencies, it has been found that some of the City's current policies have placed
unfair burdens on property owners in the development of their property where wetland
systems of poor quality and contain invasive species or have been deemed isolated and
have been altered by man's activities exist. Potential amendments have been identified
to address this issue.
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Evaluation and Appraisal Report
In order to ensure the preservation of these valuable areas, buffer zones are required for
all development adjacent to these areas to protect the integrity of the water supply, water
quality, and associated wildlife. Based on a report that was generated in 1989 by the
East Central Florida Regional Planning Council, a minimum of a 25-foot upland buffer
from was established from these areas in the Comprehensive Plan. The City is
proposing to update this policy as a result of this EAR to require upland buffer widths
that are consistent with St. Johns requirements which is an average of 25-feet, and a
minimum of 15-feet.
It is the goal of the City to conserve, protect, and appropriately manage the natural
resources of the City to ensure the highest environmental quality possible, consistent
with the growth and development of the City. Pertaining to wetlands, the Conservation
Element is designed to protect and preserve those systems that provide habitats for
endangered species, that have a hydrological connection to natural surface water bodies
or the aquifer, that are large isolated wetlands, or within a lake or littoral zone.
In 2004 the State of Florida enacted the Wekiva Parkway & Protection Act. This requires
local governments whose boundaries are within the designated study area to adopt
Comprehensive Plan policies that address how the Act will be enforced. The majority of
the City limits lies within the Wekiva Study Area. Many of the areas within the study area
lie within older portions of the City that were built-out prior to the passage of the Wekiva
Parkway & Protection Act. Undeveloped areas that fall within the study area are required
to develop in accordance with the legislation. Major elements of this legislation include
the preservation of open space through the minimization of impervious surfaces in
development projects, protection of aquifer recharge areas, and protection of Karst
features. The City amended its comprehensive plan in December of 2009 to comply with
the provisions set forth in the Wekiva Parkway and Protection Act.
In 2008, the Florida Legislature amended Chapter 163 of the Florida Statutes to require
local governments to take action to reduce the emissions of greenhouse gasses as part
of the state's response to climate change. Four elements of the Comprehensive Plan are
required to show actions that the local government will take to reduce greenhouse gas
emissions. Per the amendments to Chapter 163, the Conservation element is required to
address energy conservation practices and the land use map series is required to
identify and depict energy conservation. Many of the potential amendments that have
been outlined above depict proposed energy conservation measures the City will
undertake, and existing energy conservation measures the City already utilizes.
In order to further the reduction of greenhouse gasses and carbon emissions, the City is
evaluating incorporation of green design practices into the Conservation Element. Green
design practices in current development have proven to conserve resources in ways that
conventional design practices cannot. Green design practices utilize techniques such as
green and white roofs to assist in the reduction of the urban heat island effect, and the
reduction of greenhouse gas and carbon emissions that are generated from
developments. Conventional design practices typically fail to consider the negative
effects posed on the environment, are not sustainable in their design and operation, and
often fail to consider the culture and history of the community in the design process.
Green design practices consider the direct and indirect environmental impacts, energy
efficiency and renewable energy, resource conservation and recycling, indoor
environmental quality, and community issues such as history and culture in the design
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Evaluation and Appraisal Report
phase and allow communities to achieve goals that have been set in the reduction of
greenhouse gas and carbon emissions.
HOW THE COMPREHENSIVE PLAN RELATES TO THIS ISSUE
The Comprehensive Plan in the Future Land Use Element, Transportation Element,
Infrastructure - Sanitary Sewer, Solid Waste, Drainage, Potable Water, and Natural
Groundwater Aquifer Recharge Element, Conservation Element, and Recreation and
Open Space Element provides objectives and policies that address the issue of
Conservation practices. These objectives and policies are specified below:
Future Land Use Element
Objective 1
The development of land shall be regulated to ensure that newly developed property and
redeveloped property is compatible (meaning, not in direct conflict with uses with
regards to specific zoning categories, density and intensity) with adjacent uses and
natural features and resources including topography, vegetation, and soil conditions (9J-
5.006 (3)(b) (1), FAC).
Policy 1.2
The City shall regulate land development through the Land Development Code,
to reduce, eliminate and/or prevent negative impacts related to noise, traffic,
light, drainage, water quality, toxic and hazardous materials, litter, dust, visibility,
and other factors. This shall be accomplished by establishing and enforcing
specific environmental performance standards, consistent with state and/or
federal standards and with the City's technical enforcement capabilities.
Standards shall be based on the measurement of the undesirable characteristics
at the property line of the land on which the generating use or activity is located
and shall be based on performance levels deemed to prevent nuisance to
surrounding properties.
Policy 1.4
The City shall allow mixed and multi-uses in the Special Overlay Areas (SOAs)
which include the Downtown Redevelopment Area, Interchange Impact Areas,
and Activity Centers, and shall use strict design criteria to provide an attractive
appearance and to offset negative impacts, sprawling development patterns and
the proliferation of strip commercial development (9J-5.006 (3)(c)(5), FAC).
Policy 1.7
The land development regulations shall promote innovative development in
those cases where a public benefit can be realized and impact can be offset by
the development, as follows:
. Utilize Planned Unit Development zoning to allow for mixed uses and
unconventional development designs in those cases where the developer can
demonstrate improved living environments, protection of natural resources or
increased effectiveness of service delivery; and
. Provide development standards that create useable open spaces in new
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Evaluation and Appraisal Report
developments (9J-5.006 (3)(c)(5), FAC).
Objective 2
To provide adequate services and facilities to newly developed or redeveloped property
and to protect the ability of those services and facilities to function properly. These
services and facilities shall be provided in an economically feasible manner, as outlined
in the Infrastructure Element Sub-elements, and shall be provided in a manner to
discourage urban sprawl (9J-5.006 (3)(b)(8)&(9), FAC).
Policy 2.6
In order to utilize existing facilities efficiently, the City shall encourage infill within
developed areas. Promoting development can be accomplished through the
provision of economic and regulatory incentives. Such incentives may include
floor area ratio credits, streamlining the permitting process for development
proposals within these areas, zoning variances on building setbacks, side yard
and parking requirements and allowing sufficiently higher densities to make
investment profitable and affordable housing possible.
Objective 3
The City shall adopt and implement plans and programs for Interchange Impact Areas,
the Downtown Redevelopment Area, and Activity Centers as determined by the City
Commission to meet the criteria established by Chapter 163, Florida Statutes to
encourage Planned Unit Developments and mixed and multi-use developments (9J-
5.006 (3)(b)(2) and (10), FAC).
Policy 3.2
The City shall implement land development regulations that put in place
mechanisms that will allow for mixed and multi-uses in development plans.
Policy 3.4
The City shall develop mixed use zoning provisions within the Land Development
Code which shall provide for the implementation of new "mixed/multi uses within
a variety of higher intensity land use categories where the overall impacts of
development are determined to be no greater than those that would otherwise
result from that permitted by underlying land uses. This ordinance shall provide
for such items as internal circulation, compatibility of adjacent uses, functional
relationship between mixed uses, provisions of open space and public amenities,
and consistency with all requirements of the City's Comprehensive Plan (9J-
5.006 (3)(c)(5), FAC.
Objective 5
The City shall enforce the Land Development Code to protect and properly utilize natural
and historic resources in accordance with the Conservation Element and the following
policies.
Policy 5.1
The City shall protect areas of environmental concern and areas of scenic and
historic value, as identified in the Conservation Element, through development
regulations and public programs, including, but not limited to environmental
awareness programs at recreational facilities and in schools (9J-5.006 (3)(b)(4),
FAC).
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Evaluation and Appraisal Report
Policy 5.2
The City shall use development regulations to protect air and water quality,
flood-prone areas, natural wetland, natural habitats, wellhead protections areas
and the Floridan and surficial aquifers. This shall be accomplished by such
regulations as are described in Policy 5.3. In addition, the City shall cooperate
with federal, state and regional environmental management agencies to identify
and monitor unusual activities associated with non-residential uses and to refer
observed violations to the appropriate enforcement authorities.
Policy 5.3
The City shall enforce its Land Development Code to protect surface water
quality including, but not limited to: restrictions in building setbacks, land use
restrictions to ensure compatibility, development limitations in floodplains, and
upland and wetland protection. Land development regulations shall include
restrictions on development within areas designated as Conservation/Floodplains
on the Future Land Use Map. Flood elevations shall not be adversely impacted
and the water quality of the water body shall not be degraded. Land
development regulations shall provide adequate protection for wetland areas and
require central sewer for development within and adjacent to wetlands or 100-
year floodplain areas (9J-5.006 (3)(c)(1), FAC).
Policy 5.4
The City shall promote the use of upland and wetland corridors and buffer zones
as greenbelts, as identified in the Land Development Code.
Policy 5.5
The City shall, in coordination with developers, evaluate soil potential on a site
by-site basis through on-site examination and testing. Specific characteristics
and criteria under examination shall be as identified in the Land Development
Code.
Policy 5.6
The City shall require developers to delineate conservation and floodplain lands
on a site-by-site basis as their development proposals are submitted. The criteria
used for the delineation shall as be addressed in the Land Development Code.
Policy 5.7
The City shall enforce the Land Development Code to require development
proposals to include the identification of and management plans for rare,
endangered, and threatened flora and fauna species consistent with the criteria
outlined in the Land Development Code and the Conservation Element of this
Comprehensive Plan.
Policy 5.8
Proposed activities which would destroy or degrade the functions of wetlands or
other environmentally sensitive lands as defined by the Land Development Code
shall only be permitted in limited instances where development would be
severely restricted. If there is no practical alternative, mitigation measures shall
be undertaken, consistent with the Land Development Code.
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Evaluation and Appraisal Report
Policy 5.9
The City shall continuously plan for and only approve development that is
consistent with natural drainage and water storage plans. This shall include
special provisions in the Land Development Code pertaining to land-locked
drainage basins where projects may be permitted on a case-by-case basis when
unique site characteristics demand a more comprehensive stormwater
management approach (9J-5.006(3)(c)(4), FAC).
Policy 5.10
The City shall continue to update the Existing and Future Land Use Maps to
reflect the addition of new City wells. A protection zone of 1000 feet is depicted
in the wellhead protection areas (9J-5.006 (3)(c)(6), FAC).
Policy 5.11
The City shall ensure the protection of groundwater sources by restricting
Commercial and Industrial future land uses known to adversely affect the quality
and quantity of identified water sources within wellhead protection areas,
existing cones of influence, and aquifer recharge areas. In addition, other land
use activities such as hazardous waster facilities, fuel storage facilities, and
groundwater injection wells known to adversely affect the quality and quantity of
groundwater sources will be prohibited within wellhead protection areas, existing
cones of influence, and aquifer recharge areas (9J-5.006 (3)(c)(6) and 9-J-5.013
(2)(c)(1), FAC).
Policy 5.12
The City's wetlands shall be conserved and protected from physical and
hydrologic alterations by regulating development activities to protect natural
water-cleansing features and reduce or prevent discharges of contaminants from
urban and agricultural land uses through the Land Development Code. The Land
Development Code shall include provisions such as (but not limited to) the use of
such natural features in the treatment of stormwater runoff, limitations on
destruction of native vegetation and/or land clearing within such natural features,
and maintenance of upland buffers and/or environmental swales within a
minimum width of twenty-five (25) feet surrounding such natural features. For
the purposes of this policy, natural features shall include Florida Department of
Environmental Protection jurisdictional wetlands (9J-5.013(2)(c)(3), FAC).
Policy 5.13
The City shall protect and conserve the natural functions of wetlands by directing
land uses incompatible with the protection and conservation of wetlands and
wetland functions away from identified wetlands. The type, value, function, size,
conditions and locations of wetlands will be factors used to consider land use
changes where incompatible uses are allowed to occur, mitigation shall be
considered and will be based on the regulations set forth in the Land
Development Code (9J-5.013(3)(a)&(b), FAC).
Objective 7
The City shall enforce the Land Development Code to preserve existing and future
neighborhoods.
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Evaluation and Appraisal Report
Policy 7.5
To allow for greater open spaces, density may be computed in a defined
development project by allowing clustering in certain areas. These clusters may
be of greater density than allowable within the land use designations as long as
the total project does not exceed maximum density as designated on the Future
Land Use Map. Clustering, pursuant to the foregoing concept, may be controlled
by density caps, PUD zoning or a restrictive covenant running with the land with
power of enforcement in favor of the City.
Policy 7.7
The Land Development Code shall provide for adequate open space within new
developments and redevelopment projects. The minimum required open space
within any project shall be five (5) percent of the total site.
Objective 8
The City will ensure the availability of lands to future Public Schools by allowing
adequate opportunities proximate to residential areas (Chapter 163.3177 (6)(a), FS).
Policy 8.3
The City will ensure that the siting of schools is located away from flood plains,
flood prone areas, wetlands and other environmentally sensitive areas.
Objective 9
The City shall encourage the elimination and reduction of uses inconsistent with the
City's character and future land uses (9J-5.006 (b)(3), FAC).
Policy 9.1
Existing land uses, which are not compatible with adjacent uses, the character of
the area, natural resources, or the Future Land Use Map shall be eliminated
upon redevelopment, and until that time, may not be permitted expand unless
legally proven to be able to do so.
Transportation Element
Objective 1.4
The City shall utilize the existing system as efficiently as possible.
Policy 1.4.2
The City shall assist with the creation of a Transportation Management
Association to encourage carpooling and other forms of alternative transportation
to reduce reliance on the single occupant automobile.
Objective 2.4
The City shall place renewed emphasis on Ocoee's traditional downtown area through
improved access for all modes of transportation.
Policy 2.4.2
The City shall ensure streetscape improvements that accommodate pedestrian
activity and encourage the use of transit.
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Evaluation and Appraisal Report
Objective 2.6
The City shall provide connections for all modes of transportation between
complementary land uses.
Policy 2.6.1
The City shall increase the number of neighborhoods, commercial areas, parks,
and recreation facilities served by transit and bicycle/pedestrian facilities.
Objective 2.8
The City shall assist with improving mobility and energy efficiency through non-
automobile travel modes.
Policy 2.8.1
The City shall ensure connectivity of the sidewalk network and monitor number of
sidewalk miles added.
Policy 2.8.2
The City shall ensure the connectivity of the bicycle network and monitor number
of bike lane miles added.
Policy 2.8.3
The City shall expand the number of land uses served by bicycle and pedestrian
facilities and transit.
Policy 2.8.6
The City shall promote the number of bicycle facilities serving activity
centers.
Objective 2.9
The City shall provide access to the West Orange Trail and other recreational facilities.
Policy 2.9.1
The City shall increase the number of neighborhoods, commercial areas, parks,
and recreation facilities served by bicycle/pedestrian facilities, which connect to
the West Orange Trail.
Objective 3.2
The City shall make Ocoee a safe place for bicycles and pedestrians.
Policy 3.2.1
The City shall support the existence of facilities, which allow bicycles and
pedestrians to travel separately from vehicles.
Policy 3.2.3
The City shall require the presence of two-sided sidewalk coverage on key roads
connecting schools and residential areas.
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Evaluation and Appraisal Report
Infrastructure Element/Sanitary Sewer Sub-Element
Objective 1.2
The City of Ocoee shall plan for the expansion or increase in capacity of central
wastewater facilities to meet future needs.
Policy 1.2.4
The priorities for wastewater service provision shall be:
A. Service to existing areas that present either an immediate threat to
public health or safety, or produce serious pollution problems.
B. Maintenance or upgrading of existing wastewater system to meet or
exceed the adopted level of service standards.
C. Service to areas scheduled to be developed in the near future as
defined in the Wastewater Facilities Capital Improvements Program.
D. Extension of wastewater service to undeveloped areas in the Urban
Service Area where other major urban services have been or are being
developed simultaneously, as long as the improvements do not take away
from the funded Capital Improvements Program.
E. Expansion into other areas of the Urban Service Area.
Objective 1.3
Future and existing development patterns shall effectively utilize the present wastewater
facilities and available capacity.
Policy 1.3.1
The shift to new technologies and operational procedures shall occur as they
become economically feasible; e.g., artificial recharge systems and continued
reclamation of wastewater.
Policy 1.3.2
The City shall actively participate in the development of innovative wastewater
programs, which protect and conserve the City's water resources.
Objective 1.4
Wastewater facility plans and programs shall be designed to avoid urban sprawl, through
the Five-Year Capital Improvements Program. The "infilling" of urban areas shall be
directed to locations where an existing wastewater collection network is available and
where treatment capacity is adequate, or to areas where funds have been committed for
the provision of adequate capacity.
Policy 1.4.3
The City shall continue to promote the reuse of treated effluent in the City as
irrigation for residential and commercial irrigation and on parks and landscaped
areas to reduce the demand on existing potable water supplies.
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Evaluation and Appraisal Report
Objective 2.1
All City septic tank regulations and policies will be enforced or amended to ensure a
non-threatening coexistence with the ecosystem and the elimination of health hazards.
Policy 2.1.2
The City shall limit the use of elevated septic tanks and drainfield systems to lots
of a half-acre minimum in order to provide a more balanced ecological and
aesthetic approach to new development.
Policy 2.1.5
When it has been determined by the City Commission that the application of
Policy 2.1.4 will result in substantial environmental impact to the subject or
abutting property, the City may limit the density of the development. Substantial
environmental impact shall be determined by one or more of the following:
A. Total clearing of on-site vegetation or placement of fill material which
results in the substantial destruction of the natural vegetation.
B. Unmitigated interruption of the surface drainage pattern.
C. Contamination of surface water bodies or groundwater.
Objective 2.2
The City wastewater treatment facilities shall be designed a monitored to ensure a non-
threatening co-existence with the ecosystem and the elimination of health hazards.
Policy 2.2.1
The City of Ocoee shall continue to follow all federal, state and local wastewater
facility regulations, which provide for the protection of the environment.
Infrastructure Element/Solid Waste Sub-Element
Objective 1
The City shall coordinate with Orange County to ensure that development permits are
issued only when there is adequate facility capacity available to serve the development.
Policy 1.4
The City shall maintain full service refuse disposal throughout the City in
accordance with Ordinance 88-34. Residential household garbage service and
recycling is provided by City employees while commercial service and yard waste
is provided by the City through a private contractor.
Objective 2
The City shall maintain its per capita generation of solid waste at 0.43 tons per capita
per annum.
Policy 2.1
The City shall continue its recovery/recycling practices to reduce the volume of
solid waste production.
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Evaluation and Appraisal Report
Policy 2.2
The City shall continue to coordinate with Orange County in the resource recovery
plan that encourages residents to recycle glass, aluminum, steel cans, and
newspaper waste products.
Policy 2.3
The City shall require the private sector to participate in resource recovery
systems to the maximum extent feasible.
Policy 2.4
The City shall continue the review of alternatives to decrease refuse volume.
Infrastructure Element/Drainage Sub-Element
Objective 1
The City shall protect the water quality of City Lakes through the implementation of the
following policies. Performance standards described in Chapter 62-25 FAC, Chapter 62-
302 FAC, Chapter 40C-42, FAC, and design standards for the 100-year frequency, 24-
hour duration storm event in landlocked basins.
Policy 1.2
The City shall review commercial site plan and subdivision regulations on an
annual basis to insure that regulations are adequate to protect surface water
quality.
Objective 2
The City shall provide for the elimination of flooding effects resulting from the
concentration of stormwater runoff and flooding due to rising water in new and existing
development through the adoption of the following policies and the Levels of Service
Standards for drainage facilities.
Policy 2.3
Limit development within floodplains and flood hazard areas. Consistent with
Policy 4.3 of the Future Land Use Element, Land Development Regulations shall
ensure flood elevations are not adversely impacted and water quality of the water
body shall not be degraded.
Policy 2.4
Require compensating flood storage where proposed development will impact
existing floodplains.
Policy 2.11
Natural terrain or landscape barriers to flooding shall be preserved during the
land development process.
Policy 2.13
The City shall enforce the published 100-year flood elevations for lakes within
Ocoee pursuant to the Flood Insurance Study (FIS) for Orange County, Florida
City of Ocoee
Evaluation and Appraisal Report
and Incorporated Areas (effective December 6, 2000) and the accompanying
Flood Insurance Rate Maps (FIRMS) published with the study.
Policy 2.15
Retention/detention areas shall be designed and located so as to not adversely
reduce the existing flood storage of the flood plain.
Objective 4
The City will design a stormwater management program sufficient 0 accommodate
projected demand through the year 2010, through the following policies.
Policy 4.7
All stormwater retention/detention systems shall be designed in such a manner
as to prevent the degradation of all surface water bodies to the fullest extent
possible.
Infrastructure Element/Potable Water Sub-Element
Objective 2.1
Ocoee will continue to set procedures and mechanisms established to ensure a safe and
acceptable withdrawal rate from the aquifer, meeting the needs of the City.
Policy 2.1.1
The City of Ocoee shall support and assist the Water Management Districts in
implementing the development of a citywide consumptive use study program to
monitor the effects of withdrawals from the Floridan Aquifer.
Policy 2.1.2
The City shall continue to develop an active Water Conservation Program and
require the installation of water conservation products, which minimize the
demand for water in all new developments.
Policy 2.1.6
All policies of the Natural Groundwater Aquifer Recharge Element shall be
implemented.
Policy 2.1.8
The City shall continue to actively participate in the development of innovative
water programs, which protect and conserve water resources. Programs shall
include the continued requirement for water conservation fixtures in the building
code and reclaimed water for reuse.
Policy 2.1.10
The City shall continue to promote the reuse of treated effluent in the City as
irrigation for residential and commercial customers and parks and landscaped
areas to reduce the demand on existing potable water supplies, and continue to
expand its water reclaim and reuse system.
City of Ocoee
Evaluation and Appraisal Report
Policy 2.1.11
The City shall continue to adopt laws and policies an enacted by the SJRWMD to
meet the District's program goals for water conservation.
Policy 2.1.12
All the policies of the Conservation Element Objective 7 pertaining to reducing
water consumption shall be implemented.
Policy 2.1.13
The City shall continue to limit the extent of impervious surfaces and encourage
xeriscaping through the Land Development Code.
Infrastructure Element/Natural Groundwater Aquifer Recharge Sub-Element
Objective 1
The City shall protect aquifer recharge areas and the functions of stormwater basins and
natural drainage features.
Policy 1.1
The City shall review and cooperate in development of the local Water
Management District's plan for protection, replenishment and maintenance of
aquifer recharge areas, groundwater basins, and natural drainage features.
Policy 1.2
Within one year of adoption of the Water Management District's Groundwater
Aquifer Recharge Plan, the City shall incorporate the pertinent restrictions into
the land development regulations.
Policy 1.3
The City will establish a wellhead protection program in accordance with the DEP
regulations approved by EPA in the 1998. The program shall establish minimum
criteria for the protection and preservation of the potable water supply system.
Policy 1.4
The City will continue to follow DEP and Water Management District regulations
for defining protection areas and water supply sources. As these regulations and
programs are revised, the City will review and update its policies as they apply to
the revised regulations and the Ocoee area.
Objective 2
The City shall coordinate with other government entities regarding development of
protection standard for groundwater basins.
Policy 2.2
The City Engineer shall continue to cooperate with the local Water Management
District and Orange County to identify and eliminate potential pollution sources
that may contaminate the aquifer.
City of Ocoee
Evaluation and Appraisal Report
Policy 2.3
The City Engineer shall cooperate with Orange County to provide information and
technical assistance in developing a uniform set of guidelines for protection of the
aquifer and groundwater basin.
Conservation Element
Objective 1
The City of Ocoee shall continue to meet or exceed the minimum air quality standards
established by the Florida Department of Environmental Protection, by ensuring that new
development at least maintain the current standards. This shall be accomplished through
the policies which follow (Chapter 187.201, 11(a), and 11(b)1-5, FS; 9J-5.013(2)(b)1,
FAC).
Policy 1.1
The City shall cooperate with the State and Orange County in monitoring the
existing Air Pollution Inventory System (APIS) facilities. Cooperation shall
include, but not be limited to assisting in the location of monitoring facilities,
conducting reviews of data with the Florida Department of Environmental
Protection (DEP) personnel and reporting suspected emission violations within
five (5) days.
Policy 1.2
Industrial land uses shall be located where they minimize the impact on current
air quality standards.
Policy 1.3
The City shall review with DEP emission data for new industries as part of the
development review process and when issuing development orders and permits.
When DEP recommends design changes and/or mitigation, such information
shall be reviewed with the applicant. In addition, all permits for industrial uses
shall be sent to DEP for review.
Policy 1.4
The City shall encourage the use of innovative development forms, such as
planned unit developments, multi-use centers, and others to reduce the need to
travel. Incentives such as density bonuses and transfers of development rights
shall be used to encourage these forms.
Objective 2
The City shall protect the quality of all surface water bodies and groundwater quality by
implementing the following policies (Chapter 187.201, 8(a), and 8(b)1-14, FS).
Policy 2.1
The City shall regulate development activities to protect natural water-cleansing
features and reduce or prevent discharges of contaminants from urban and
agricultural land uses through the land development regulations. The land
development regulations include provisions such as (but not limited to) the use of
such natural features in the treatment of stormwater runoff, limitations on
destruction of native vegetation and/or land clearing within such natural features,
City of Ocoee
Evaluation and Appraisal Report
and maintenance of upland buffers and/or environmental swales within a
minimum width of twenty-five (25) feet surrounding such natural features. For the
purposes of this policy, natural features shall include DEP jurisdictional wetlands
(9J-5.013(2)(c)(3), FAC).
Policy 2.2
The City shall ensure the protection of groundwater sources by restricting
Commercial and Industrial future land uses known to adversely affect the quality
and quantity of identified water sources within wellhead protection areas, existing
cones of influence, and aquifer recharge areas. In addition, other land use
activities such as hazardous waster facilities, fuel storage facilities, and
groundwater injection wells known to adversely affect the quality and quantity of
groundwater sources will be prohibited within wellhead protection areas, existing
cones of influence, and aquifer recharge areas (9J-5.006 (3)(c)(6) and 9-J-5.013
(2)(c)(1), FAC).
Policy 2.3
As of the effective date of this Comprehensive Plan, future development, as
defined by the Ocoee Land Development Code, shall not occur within 25 feet of
an approved 100-year floodplain elevation or jurisdictional wetland boundary
except where exempted by State Statute or in cases where offsetting on-site
environmental mitigation or enhancement of these areas is demonstrated to
improve natural functions or to provide low-impact uses or recreational amenities
which encourage enjoyment of such areas.
Objective 3
The City shall protect the natural functions of the 1 OO-year floodplains as prescribed by
FEMA and/or Orange County so that the flood-carrying and flood storage capacity are
maintained. This Objective shall be implemented by the following policies (Chapter
187.201, 8(b)(8); 9J-5.013(2)(c)(6), FAC; ECFRPC Policies 4.14, 4.15 & 4.16).
Objective 4
The City's wetlands shall be conserved and protected from physical and hydrologic
alterations, by implementing the following policies (Chapter 187.201, 8(b)2, 4, 8, 10, and
14, 10(a), 10(b)1, 2, 6, 7, and 10, FS; 9J-5.013(3)(a), FAC; ECFRPC Policies 4.23,4.24,
4.25).
Policy 4.1
The City's land development regulations ensure that:
a) Site plans for new development identify the location and extent of
wetlands located on the property.
b) Site plans provide measures to assure that normal flows and quality
of water will be provided to maintain wetlands after development.
c) Where alteration or removal of wetlands is necessary in order to
allow reasonable development of property, either the restoration or
enhancement of disturbed wetlands will be provided or additional
wetlands will be created to mitigate any wetland destruction, within the
same site or watershed, if possible.
City of Ocoee
Evaluation and Appraisal Report
Policy 4.2
The City shall protect and conserve the natural functions of wetlands by directing
land uses incompatible with the protection and conservation of wetlands and
wetland functions away from identified wetlands. The type, value, function, size,
conditions and locations of wetlands will be factors used to consider land use
changes. Where incompatible uses are allowed to occur, mitigation shall be
considered and will be based on the regulations set forth in the Land
Development Code (9J-5.013(3)(a)&(b), FAC).
Policy 4.3
The City shall continue to utilize standards and guidelines through Land
Development Regulations to protect wetlands, including:
a) Prevention of excavation or filling unless the City Commission finds, on the
basis of reasonable evidence, that there are no practical alternatives to the filling;
b) Where wetland disturbance is permitted, requiring two-for-one replacement of
area, maintenance of proximal locational relationship and functionality, and
enforcement of alternative mitigation requirements if necessary;
c) Retention of buffer areas in their natural state surrounding connected wetlands
at a minimum width of 25 feet unless the City Commission finds that width
impractical to maintain;
d) Modifications in wetlands shall ensure that predevelopment water flow (rate
and quantity) is maintained to preserve wetland viability; and
e) Wetlands management shall conform to standards included in the
Comprehensive Plan.
Objective 6
Ecological communities and wildlife, especially endangered and rare species, shall be
identified, managed and protected, through the implementation of the following policies
(Chapter 187.201, 10(a), and 10(b)1-7, FS; 9J-5.013 (2)(b)(4), 9J-5.013 (2)(c)(5)&(9),
FAC; ECRRPC Policies 4.26,4.27,4.28,4.29,4.30 & 4.31).
Policy 6.10
The City shall continue to strictly enforce provisions in the Land Development
Code designed to preserve existing trees and to require the planning of new
landscaping materials in new developments.
Objective 7
The City shall seek to reduce water consumption. This objective shall be achieved by
implementation of the following policies (Chapter 187.201, 8(a), 8(b)1, 2,5,9,10,11,12,
13 & 14, FS; 9J-5.013(2)(b)2 and (2)(c)4, FAC; ECFRPC Policies 4.1,4.2,4.3,4.4,4.7 &
4.12).
City of Ocoee
Evaluation and Appraisal Report
Policy 7.4
The City shall continue to implement the water reuse program on City-owned
properties and eventually expand the program to include private sector users.
Objective 9
The City shall continue to coordinate with Orange County to develop a hazardous waste
management programs for the proper storage, recycling, collection, and disposal of
hazardous wastes (Chapter 187.201, 13(a), 13(b)1-11, FS; 9J-5.013(2)(c)(10), FAC;
ECFRPC Policy 2.1).
Policy 9.2
The City shall continue to promote the recycling of hazardous wastes by
publicizing lists of approved recyclers.
Recreation and Open Space Element
Objective 6
The City shall provide improved public access parks.
Policy 6.4
Handicap parking facilities and bicycle racks shall be provided at all City parks.
Policy 6.5
The City shall coordinate with other governmental agencies by continuing its
membership in the East Central Florida Regional Planning Council, Metropolitan
Planning Organization, and the Bicycle and Pedestrian Advisory Committee.
IDENTIFICATION OF UNANTICIPATED CHANGES ON THIS ISSUE
The Conservation Element does not distinguish between wetland classifications,
requires the protection of all wetland systems, including those that are of poor quality
and contain invasive species. While there is good intent behind these policies, protection
of poor quality wetland areas with invasive species, or areas that have been altered by
man ultimately fails to achieve the original intent of these policies. It is the goal of the
City to protect "natural" resources, and to protect and conserve the "natural" functions of
wetlands. Wetlands that have been altered or contain invasive species should not be
classified as "natural" resources of the City. Creation of a wetland classification system
will allow the City greater ability to protect the natural functions of wetlands, and will
allow for the creation of new, natural wetland systems through the mitigation process if
necessary. In addition, the required 25-foot upland buffer from these areas is based
upon research from the 1980's, and has been found not to serve any greater purpose
that the upland buffer requirements of the St. Johns Water Management District which
permits an average of 25-feet, with a minimum of 15-feet.
IDENTIFICATION AND ANALYSIS OF PROBLEMS OR OPPORTUNITIES
THAT HAVE RESULTED FROM THIS ISSUE
Numerous opportunities that have resulted from this issue should produce results for the
City over time. The EAR provides an opportunity to add strong policies into the
Conservation Element that will present strategies to reduce greenhouse gasses and
City of Ocoee
Evaluation and Appraisal Report
carbon emiSSions in accordance with Florida law. Encouragement of green design
practices in current development projects, and conservation programs implemented by
the City will be a cornerstone of the policies added to the Conservation Element. These
policies will ultimately assist in the reduction of greenhouse gasses and carbon
emissions and will ultimately strengthen the Conservation Element.
Creation of a wetland classification system that parallels that of Orange County and a
revision of the upland buffer requirement that mirrors the water management district
requirements will further strengthen this portion of the Conservation Element. These
adjustments will better protect and preserve wetland systems that provide habitats for
endangered species that have a hydrological connection to natural surface water bodies
or the aquifer, or are within a lake or littoral zone. In accordance with the wetland
classification system of Orange County, mitigation for those wetland systems that are of
poor quality and contain invasive species and whose functions have been altered by
man's activities will be permitted provided specific measures are undertaken which will
be identified as a result of the EAR based amendments.
The implementation of the Wekiva Parkway & Protection Act will afford many
opportunities for the Conservation Element to be further strengthened and improved. As
the majority of the City limits falls within the We kiva Study Area, the preservation of open
space through the minimization of impervious surfaces in development projects,
protection of aquifer recharge areas, and protection of Karst features will be issues of
great importance that will be closely monitored in the Conservation Element.
IDENTIFICATION OF REQUIRED AMENDMENTS TO THE COMPREHENSIVE
PLAN THAT ADDRESS THE RELATED PROBLEMS AND OPPORTUNITIES
. Allow upland buffer from wetlands to have an average of 25-feet, and a minimum
of 15-feet to be consistent with SJRWMD criteria in lieu of the required 25-foot
minimum upland buffer.
. Revise wetland classification system to allow three classifications of wetlands to
be consistent with Orange County requirements: Class I, II, and III
. Implementation of the key requirements of the Wekiva Parkway & Protection Act.
. Creation of Comprehensive Plan Policy that stipulates the City must replace
incandescent traffic light signals with LED signals, to be more energy efficient.
. Convert of all City owned vehicles to hybrids.
. Complete energy efficient upgrades to existing City buildings.
. Adopt an anti-idling policy in the Comprehensive Plan for City vehicles to save
fuel and reduce carbon emissions.
. Institute a recycling program in all City buildings.
City of Ocoee
Evaluation and Appraisal Report
. Create a Comprehensive Plan policy that stipulates all City employees shut off
computers and lights when leaving work for the day in order to conserve energy.
. Consider green or white roofs on City buildings to reduce energy needs for
cooling and to assist in diminishing the urban heat island effect.
. Institute a bicycle program for City employees to use for work related
transportation in a 1 mile radius of City buildings to reduce traffic congestion,
carbon emissions, and gasoline costs.
. Institute an urban forestry program to allow the City to reduce its carbon footprint.
. Allow the staff forester a greater role in review of development plans to ensure
tree preservation ordinances are complied with and to ensure adequate
development of the City's urban forestry program.
. Update the tree protection ordinance to specify specific tree density requirements
for various development types and stipulate tree preservation strategies.
. Offer incentives for existing businesses to retrofit their buildings to be
environmentally sound (i.e.: tax breaks, expedited permitting, etc).
. Offer incentives for green development practices in new development (i.e. tax
breaks, expedited permitting, density bonuses, height bonuses, architecture
design waivers, etc.).
. Adopt a zoning code that allows increased density, access to transit, mixing of
uses, and vibrant pedestrian oriented places in lieu of traditional Euclidian zoning
requirements.
. Revise the zoning code to stipulate xeroscape landscaping practices.
. Revise the residential accessory use regulations to permit solar panel roofs and
wind power devises.
. Offer incentives for solar panel roofs and wind power devises on residences (i.e.:
tax breaks, expedited permitting, etc).
. Revise the zoning regulations to permit urban gardens and the raising of animals
and fowls for noncommercial purposes to decrease energy consumption related
to food production (i.e. transport of food, travel to purchase food).
City of Ocoee
Evaluation and Appraisal Report
SUCCESSES AND SHORTCOMINGS OF EACH ELEMENT OF THE
COMPREHENSIVE PLAN
The City has been working diligently over the past two years to engage the
community as well as assess its real vision and its future. Several studies have
been undertaken to better evaluate various aspects of the community, including
the Northwest Sector Study, the CRA Target Areas Special Development Plan,
as well as required studies, such as the Wekiva Parkway and Protection Act
policies, the Water Supply Plan, or the Wastewater Plan. In context with these
studies and the various public input mechanisms utilized, it is apparent that the
community is ready to view itself differently. Fortunately, the community view is a
very sustainable one and appropriate one, and the focus will begin to shift
towards promoting a more sustainable growth pattern as the City grows into a
more mature life cycle. The City's Comprehensive Plan has performed well since
2002 at creating a quality suburban place, which is the vision currently expressed
in the plan. The EAR based amendments will focus on transitioning key areas
into places that contain more elements of urban design and that pay respect to
multi-modal transportation. These patterns will be supportive of the other major
EAR issues identified, because they are all components of a sustainable
community.
Specifically, the success and/or shortcomings of each element is discussed in
detail as relates to each of the major issues identified in the EAR.
Future Land Use Element
GOAL
TO PROMOTE, PROTECT, AND IMPROVE THE PUBLIC HEALTH, SAFETY,
GENERAL WELFARE, AND AESTHETICS THROUGH THE PROVISION OF
APPROPRIATE LAND USES BY ESTABLISHING AN APPROPRIATE
PATTERN OF LAND USE AND DIRECTING DEVELOPMENT ACCORDINGLY
(9J-5.006 (3)(a), FAC).
The Future Land Use Element and its 10 objectives have performed adequately
at meeting the established goal. The established land use pattern is consistent
largely and has only minor areas that were influenced prior to 1997 with land use
patterns that are inconsistent with the goal. While the element has created a
successful suburban community, it does not reflect a growth pattern that is
consistent with creating places that integrate transportation as a key component
of the design of the community. It established activity centers and interchange
area policies that have worked well and been implemented in the land
development code, including the CRA Target Areas Special Development Plan.
City of Ocoee
Evaluation and Appraisal Report
Transportation Element
The transportation network in the City of Ocoee is largely a feeder network of
collector roads funneling automotive traffic to the larger regional roadway
network. The suburban development pattern that has occurred in the city over
the past decade created a lack of interconnectivity and mobility alternatives
between residential areas and employment, shopping and recreational
destinations. The city recognizes that the transportation network can't continue
on this trend, and has begun the visioning process to reinvent themselves as
something besides a bedroom community. The new vision of the City focuses on
urban infill with a mixed land use pattern to foster mobility through a multimodal
transportation system that provides a greater emphasis on mobility with
opportunities for transit, bicycling, walking and vehicles. This is a shift from the
current auto dominated focus of the Comprehensive Plan, providing intersection
and roadway capacity to address the mobility demands of growth.
The adopted Comprehensive Plan includes three categories of action for
improving mobility
. System Management - offers operational and safety improvements
generally provided by intersection modifications, signalization, and access
management.
. Mobility and Demand Management - seeks to reduce the demand for
private motor vehicle travel through increased use of transit, bicycles, and
walking through a combination of community outreach, sidewalk
construction, and bikeway improvements.
. Roadway Capacity Improvements - proposes new street construction
and add-lanes projects to eliminate congestion that cannot be addressed
with Category I and II actions. These categories are general organized by
difficulty of implementation, with Category II requiring more private
behavioral changes and Category III requiring more public and private
funding relative to Category I actions.
The difficulty in implementing these actions is that they do not support the
Community Character and Design vision the city is working towards.
Another issue with the Comprehensive Plan is that it does not reflect recent
changes in the growth management legislation. Orange County was established
as a Dense Urban Land Area (DULA) under provisions of SB 360, and with that
designation the City of Ocoee as well as all other Municipalities within the county
was given automatic Transportation Concurrency Exception Area (TCEA) status.
With the TCEA status, the City no longer needs to address transportation
concurrency on a project by project roadway capacity basis, but needs to
establish a mobility plan to address the mobility of all users by all modes. Not
only does the Comprehensive Plan not address the Concurrency Exception Area
City of Ocoee
Evaluation and Appraisal Report
status, but lacks the policies to support multimodal strategies consistent with the
new vision of the City.
Backaround and Analvsis
The City is located just ten miles from downtown Orlando and less than fifteen
miles from Disney World and other regional employers. The extension of SR 408
from Hiawassee Rd. west to Ocoee and Florida's Turnpike provides quick and
easy access to downtown Orlando, and addition was SR 429 (which is the
western section of the metropolitan ring highway that also includes SR 417)
provides that direct connection south to 1-4, Disney World and the Tampa Bay.
The regional roadway network has grown dramatically providing exceptional
regional accessibility to these destinations resulting in a nearly tripling in
population growth since 1990.
Map 14 - Major Roadways in the City of Ocoee
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State Road 50 (Colonial Drive) is a principal arterial serving as one the only
continuous non-toll route between communities to the west (Clermont, Oakland &
Winter Garden) and Orlando to the east. This is also the location of the
Community Redevelopment Area (CRA) and the primary commercial centers
City of Ocoee
Evaluation and Appraisal Report
within the city. Historically State Road 50 has been a facility of critical concern
with volumes approaching or in excess of 50,000 vehicles per day on a four lane
urban arterial, but with the widening of Old Winter Garden Road and the
economic downturn that has hit the nation, volumes have decreased by as much
as 15,000 over the past two years. This provides some relief for the City and the
development potential of the CRA, but conflicts between the regional mobility and
local accessibility on State Road 50 are still prevalent if development potential
identified in the Special Area Plan of the CRA is implemented.
Map 15 - CRA Framework
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City of Ocoee
Evaluation and Appraisal Report
Onaoina Transportation Initiatives
The City of Ocoee is redeveloping and encouraging infill in its urban core through
the Community Redevelopment Area (CRA). The City has initiated a vision for
three Target Areas for Special Development, and for this vision to be successful
a interconnected transportation network that doesn't rely on the regional roadway
network needs to be developed. The special area plan for target areas within the
CRA, includes solutions to meet the mobility needs of the City and the target
areas. Solutions include, additional street connections, land use patterns that
encourage a modal shift from the automobile to non-motorized modes. Map 16
identifies the additional network connectivity proposed with the special area plan
to reduce the automotive traffic on State Road 50 for local traffic.
Map 16 - Future Transportation Network
City of Ocoee
Evaluation and Appraisal Report
The City of Ocoee, has also maintained a Concurrency Management Database
and Count Program since 1997 monitoring the impacts of development on the
transportation network. The City's has adopted level of service (LOS) standard of
"0" for daily traffic for all roadways in the City. This includes State Road 50 which
is maintained by the Florida Department of Transportation (FOOT). According to
the existing Level of Service tables, the existing roadway system is functioning
well with two exceptions on State Road 438 (Silver Star Road). These roadway
segments are the primary access to State Road 429 connecting the City's
residents to regional employment destinations.
Map 17 - 2008 Daily Level of Service
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City of Ocoee
Evaluation and Appraisal Report
Table 14 - 2008 Level of Service
TABLE 14
2008 DAILY LEVEL OF SERVICE (LOS) AND CAPACITY ON CMS SEGMENTS
2008 Cacacllv I Volumel Actual Adopted
SEGMENT FROM TO Volume Total Remaining I Source I Capacity LOS LOS
A.D. Mims Rd. Wurst Rd. Clarne Rd. 6,731 17.400 10,669 ART-TAB 0.39 A D
A.D. Mims Rd. Clarne Rd. Apopka-Vineland Rd. 5,744 17.400 11.656 ART.TAB 0.33 A D
AdairSt. Wurst Rd. Clarcona-Ocoee Rd. 2.200 9.200 7.000 ART-TAB 0.24 C D
Apopka-Vineland Rd. A.D. Mims Rd. Hackney-Preirie Rd. 11,85€ 15,50 3.644 ART-TAB 0.76 A D
Apopka-Vineiand Rd. Hackney-Preirie Rd. Clarcona-OcoeeRd. 12,021 15,50 3.479 ART.TAB 0.78 A D
Blackwood Ave. Old IMnter Garden Rd. SR50 8.111 34,20 26,089 ART-TAB 024 A D
Blad<wood Ave. SR50 Mon~omery Ave. 3,566 13.00 9.414 FDOT 0.28 C D
Bluford Ave. Old IMnter Garden Rd. SR 50 5,721 13,00 7,279 ART.TAB 0.44 C D
Bluford Ave. SR50 Geneva St 9,151 13.000 3,849 ART-TAB 0.70 C D
Bluford Ave. Gene", St Oriando Rd 8.754 13,00 4.246 ART-TAB 0.67 C D
Bluford Ave. OriandO Rd. McKey SI. 8,180 13,00 4.820 ART-TAB 0.63 C D
Bluford Ave. McKey SI. SR 438 (Fran~in Ave) 8,240 13,00 4.760 ART-TAB 063 C D
aov.ness Rd. Kissimmee Ave. SR 438 10.49 15.40 4.907 ART-TAB 068 B D
Cilrus Oaks Old IMnter Garden Rd. SR50 2.850 9.200 6,350 ART-TAB 0.31 C D
Clarcona Ceoee Rd Fullers Cross Rd. West Rd. 4,736 15,20e 10.464 FDOT 0.31 A D
C1armna-Ocoee Rd. West Rd. Ingram Rd. 7.837 15.20e 7.363 Coke 0.52 A D
Clarcona-Dcoee Rd. Ingram Rd Clarne Rd. 8.157 15.20e 7,043 ART. T AB 0.54 A D
Clarcona-Ocoee Rd. Clarne Rd. Apopka.Vineland Rd. 9.570 15,20e 5,630 ART-TAB 063 A D
C1ar1<e Rd. SR50 'NIlite Rd. 21,30: 34,20e 12.895 ART-TAB 062 A D
Clarne Rd. 'NIlite Rd. SR 438 25.76 34.20e 8.432 ART-TAB 0.75 A D
Clarne Rd. SR 438 A.D. Mims Rd. 17.311 34,20e 16,889 ART-TAB 0.51 A D
Clarne Rd. A.D. Mims Rd. Hackney-Prairie Rd. 7.847 17,10e 9,253 ART-TAB 0.46 A D
Clarne Rd. Hackney-Prairie Rd. Clareona-OcoeeRd. 5,979 17,10e 11,121 ART-TAB 0.35 A D
East C""", Point Rd SR 438 Palm Dr 6,216 9,200 2,984 ART-TAB 0.68 C D
Fullers Cross Rd. Ocoea-Aooole Rd. Clarcona-OcoeeRd. 3,107 11,90 8,793 ART.TAB 0.26 B D
Gene", St. Kissimmee Ave. Bluford Ave. 8.488 15,10 6,612 ART. TAB 0.56 B D
Good Horres Rd. Old IMnter Garden Rd. East-West Expressway 18,3OE 33,90 15,594 ART-TAB 0.54 B D
Good Horres Rd. East-west E>pressway SR50 19,051 33,90 14,849 ART-TAB 0.56 B D
Good Horres Rd. SR50 Balboa Dr. 13.125 16.60 3.475 ART-TAB 0.79 D D
Good Horres Rd. Balboa Dr. 'NIlite Rd. 12,556 15.90 3.344 ART-TAB 0.79 A D
Hackney-Prairie Rd. Clarne Rd. Apopka-Vineland Rd. 925 13,10 12,175 ART-TAB 0.07 A D
Hemoel Ave. Gotha Rd. Old Winter Garden Rd. 7.256 13.10 5.844 ART-TAB 0.55 A D
Ingram Rd McCormick Rd Clarcona Oeoee Rd 1.457 9,200 7,743 ART-TAB 0.16 C D
Johio Shores Rd. SR 438 A.D. Mims Rd. 678 11,900 11,222 ART-TAB 0.06 A D
Kissimmee Ave. aov.ness Rd. McKeySt. 2.093 9,200 7,107 FOOT 0.23 C D
Lake'MlOd Avenue SR 436 Rewis St. 6,774 15,20C 8,426 ART-TAB 0.45 A D
Lakewood Avenue Rewis SI. Wurst. Rd. 6,079 15,200 9,121 ART-TAB 0.40 A D
Lake'MlOd Avenue Wurst Rd. Fullers Cross Rd. 3,591 15,20e 11,609 ART-TAB 0.24 A D
Maouire Rd, Par1<ridae-Gotha Rd. Roberson Rd. 11,63 17.40e 5,763 ART.TAB 0.67 A D
Maguire Rd. Roberson Rd. Tomyn Blvd. 20,177 34,20e 14,023 ART-TAB 0.59 A D
Maguire Rd. Tomyn Blvd. Old Winter Garden Rd. 23,31 34.20e 10,883 ART-TAB 0.68 A D
Maguire Rd. Old IMnter Garden Rd. SR 50 22,02~ 34.20e 12,171 ART-TAB 064 A D
Maauire Rd. SR50 Marshall FalTl1s Rd. 11,053 34,20e 23,147 ART-TAB 0.32 A D
Maguire Rd. Marshall FalTl1s Rd. Story Rd. 13,701 17,40e 3,699 ART-TAB 0.79 A D
CAPACITY STANDARDS SOURCE
ART-TAB ART-TAB analysis
FDOT FDOT LOS Handbook
McDonald McDonald's Traffic Impact Study
Wal-Mart Wal-Mart Traffic Impact Study
Coke Coca-Cola (Crown Point PUD) Traffic Impact Study
Note: Holtledlitlll;c:iz.ed .\'egmcIIL\' exceed capacity.
City of Ocoee
Evaluation and Appraisal Report
Table 14 (cant) - 2008 Level af Service
TABLE ",continued)
2008 DAILY LEVEL OF SERVICE (LOS) AND CAPACITY ON CMS SEGMENTS
2008 Caoacitv I Volumel Actual AdopEd
SEGMENT FROM TO Volume Total Remaining I Source Capacity LOS LOS
Maguira Rd. Story Rd. Kissimmee Aye. 12.19 17 .40 5,201 ART-TAB 0.70 A 0
Marshall Farms Rd. SR50 Magui'" Rd. 5.840 12.10C 6,260 ART-TAB 0.48 C 0
McCormick Rd. Ocoea-Aoool<I Rd. Ingram Rd. 4.304 12.100 7.796 ART-TAB 0.36 C 0
McCormick Rd. Ingram Rd. Apopka Vineland 3.154 12,2OC 9.046 FOOT 0.26 C 0
McKey St Kissimmee Ave. Bluford Ave. 2.746 11.70C 8.954 FOOT 0.23 C 0
MontgomeryAva Blackwood Ave. White Rd. 5,885 9.200 3.315 ART.TAB 0.64 C 0
Moore Rd. Maguire Rd. 7th Ava. 5.419 9.200 3.781 FOOT 0.59 C 0
Ocoee Hills Rd. SR 438 Flewelling St. 2,906 9.400 6.494 ART-TAB 0.31 C 0
Ocoea-Apopl<l Rd, SR 438 Demastus Ln 7,506 17.40 9,894 ART-TAB 0.43 A 0
Ocoea-AoooI<I Rd. Demastus Ln Fullers Cross Rd. 7.498 17.40 9,902 Coke 0.43 A 0
Ocoea-Apopl<l Rd. Fullers Cross Rd. West Rd. 9.892 17.40 7.508 ART-TAB 0.57 A 0
Ocoea-AoooI<I Rd. West Rd. McConnick Rd. 10,281 17.40 7.112 ART-TAB 0.59 A 0
Old 'Mnter Gardan Rd. Maauire Rd. Bluford Ave. 18.194 34,20 16,006 Coke 0.53 A 0
Old 'Mnter Garden Rd. Bluford Ave. Blackwood Ave. 22.42 34.20 11.771 ART-TAB 066 A 0
Old 'MnterGarden Rd. Blackwood Ave. Hempel Ave. 20,527 34.20 13.673 ART-TAB 0.60 A 0
Oid 'Mnter Garden Rd, Hemoal Ave. Citrus Oaks Ave. 19.488 34,20C 14.712 ART-TAB 0.57 A 0
Old 'Mnter Garden Rd. Citrus Oaks Ave. Good Homes Rd. 20.40S 34,20C 13.791 ART-TAB 0.60 A 0
Orlando A.... Bluford Ave. Mon~omery Ave. 4,782 14.00C 9,218 ART-TAB 0.34 A 0
ReoMsSt. Lakewood Ave. Flewelling St. 1,275 9.400 8,125 ART-TAB 0.14 C 0
Roberson Rd. Windermere Rd. Maaui", Rd. 9.705 12.10C 2,395 ART.TAB 0.80 C 0
Russell Dr. Flewelling St. Willow Creek Rd. 1.370 9.400 8.Q30 FOOT 0.15 C 0
SR 438 (Sliver Sr.r Rd.) E. Crown Point Rd. SR 429 17.101 16.600 -501 FDOT 1.03 E 0
SR 438 (Silvar Star Rd.) SR 429 Bov.ness Rd. 13.19C 16.60C 3.410 ART-TAB 0.79 0 0
SR 438 (SIlver Sr.r Rd.l Bowneu Rd. Ocoee-Apopka Rd. 16,808 16.600 -208 ART.TAB 1.01 E 0
SR 438 (Silver Star Rd.) Ocoea-Aoopl<l Rd. Bluford Ave. 14,82 16.60C 1.772 ART-TAB 0.89 0 0
SR 438 (Silver Star Rd.) Bluford Ave. Qcoee-Hills Rd. 14,964 21.24 6.279 ART-TAB 0.70 A 0
SR 438 (Silver Star Rd.) Ocoea-Hils Rd. Clarke Rd. 17.17 21,24 4.073 McDonald 0.81 B 0
SR 438 (Silver Star Rd.) Clarke Rd. Johio Shores Rd. 20.041 35.00e 14.959 McDonald 0.57 B 0
SR 438 (Silver Star Rd.) Johio Shores Rd. Good Homes Rd. 19,195 35.000 15.805 FOOT 0.55 B 0
SR 50 (West Colonial Dr.) Ninth 51. SR 429 47.50< 49,90< 2.400 FOOT 0.95 C 0
SR 50 (West Colonial Dr.) SR 429 Marshall Farms Rd. 45,00e 49,90e 4.900 FOOT 0.90 C 0
SR 50 (West Colonial Dr.) Marshall Farms Rd. Magui", Rd. 45.000 49.90C 4.900 FOOT 0.90 C D
SR 50 (West Colonial Dr.) Maguire Rd. Bluford Ave. 35.50 49.90C 14.400 FOOT 0.71 C D
SR 50 (West Colonial Dr.) Bluford Ave. Blackwood Ave. 38,50 54.30< 15.800 Wal-Mart 0.71 C 0
SR 50 (West Colonial Dr.) Blackwood Ave. Clarke Rd. 38,50 54,30e 15,800 Wal-Mart 0.71 C 0
SR 50 (West Colonial Dr.) Clarke Rd. Good Homes Rd. 36.50 54.30e 17.800 Wal-Mart 0.67 C 0
SR 50 (West Colonial Dr.) Good Horres Rd. Apopka-Vineland Rd. 31.50 54.30e 22,800 ART-TAB 0.58 B 0
Slory Rd. Ninth St. SR 429 8,218 15.100 6,882 ART-TAB 0.54 B 0
Slory Rd. SR 429 Kissimmee Ave. 8.862 15.100 6,238 ART-TAB 0.59 B 0
Taylor St. Franklin St McKey St. 2.899 11.70e 8.801 ART.TAB 0.25 C D
T omyn Blvd. Roberson Rd. Warrior Rd 6.487 11.70e 5,213 FOOT 0.55 C 0
T omyn Blvd. Warrior Rd. Maguire Rd. 4.467 11.700 7,233 FOOT 0.38 C 0
West Rd Ocoea-Apopl<l Rd. Clarcona-Ocoee Rd. 5.563 14,00 8.437 FOOT 0.40 A D
Whrte Rd. Montgomery Ave. Clarke Rd. 6.730 14,00 7.270 ART-TAB 0.48 A 0
Whrte Rd. Clarke Rd. Good Homes Rd. 6,527 14.00 7.473 ART-TAB 0.47 A 0
Wurst Rd. Lakewood Ave. AdairS\. 5.434 11.90 6.466 ART-TAB 0.46 B 0
Whrte Rd. , MontgomeryAve. . Clarke Rd. 7.071 11,90C 4.829 ART-TAB 0.59 B 0
CAPACITY STANDARDS SOURCE
ART-TAB ART-TAB analysis
FDOT FDOT LOS Handbook
McDonald McDonald's Traffic Impact Study
Wal-Mart Wal-Mart Traffic Impact Study
Coke Coca-Cola (Crown Point PUD) Traffic Impact Study
NtJte: Holded/itaJidzet/ ."egme"t~ exceed "(Ipad/y.
City of Ocoee
Evaluation and Appraisal Report
Conclusions
The City has been proactively working to accommodate multimodal solutions
within the transportation network, with the development of the Special Area Plan
for the CRA. However the network alternative associated with the plan is only
conceptual and does not address the city as a whole. The proposed network
connectivity of the CRA as well as the long range transportation vision of the rest
of the city needs to be analyzed further for effectiveness and financial feasibility.
Recommendations:
There are several initiatives the City may further consider to achieve its
transportation goals. These include:
. Development of an Infrastructure and Mobility Plan to determine the
transportation vision of the City as a whole and to develop funding strategies
to achieve that vision.
. Revise the Transportation Element of the Comprehensive Plan with goals,
objectives and policies that supports multimodal strategies, complementing
the Special Area Plan of the CRA and Mobility Plan.
Housing Element
GOAL
TO PROVIDE SAFE, DECENT AND SANITARY HOUSING IN SUITABLE
NEIGHBORHOODS AT AFFORDABLE COSTS TO MEET THE NEEDS OF
THE PRESENT AND FUTURE RESIDENTS OF THE CITY.
The Housing Element contains eleven objectives that address provIsion of
adequate housing in context of process, meeting federal and state standards,
and focusing on ensuring adequate infrastructure. This element has been
generally effective in providing for adequate housing; however, there are several
ways in which this element could be enhanced with regard to affordable housing.
I nfrastru ctu re
The City's Infrastructure Element contains the following sub-elements: sanitary
sewer, solid waste, potable water, drainage, and natural groundwater aquifer
recharge. Recent efforts to adopt water supply and wastewater plans, along with
Wekiva Parkway and Protection Act policies have served to further the success
of this element, which has served the City well from a Level of Service
standpoint. The drainage sub-element should be further evaluated to determine
City of Ocoee
Evaluation and Appraisal Report
1
whether the City should modify existing policies addressing protection of 100
year floodplain to recognize the extensive Drainage Basin Studies conducted by
the City and require further evaluation of land development regulations.
Conservation
The Conservation element has worked very well within the City's framework of
suburban land patterns and promotion of resource protection. The City's
comprehensive plan has strict wetland protection policies that will be evaluated
with the EAR based amendments, but have served the City well as it has
developed. Additional emphasis on environmental systems protection has been
added with the Wekiva Parkway and Protection Act policies; however, a much
closer look should be taken at how the City's changing design goals may be
meshed with regional conservation efforts.
Recreation and Open Space
The City has done an excellent job of acquiring land for provision of parks and
open space throughout the growth management life cycle of the existing
Comprehensive Plan. The Recreation and Open Space Element focuses park
planning well. The City has conducted numerous user surveys and has
considered system planning despite the overwhelming public approval of the
City's high quality parks system. The issues associated with additional parks
accessibility was raised in the public participation process and it has a bearing on
the Cities desire to focus on urban design and transportation in the future.
Future efforts should focus on connectivity, system planning, and nomenclature
with respect to the likely increased design role of the public realm.
The Recreation and Open Space Element establishes Level of Service standards
for park types and uses a neighborhood planning approach, but does not focus
specifically on facility based policy.
The Element's goals, objectives, and policies adequately cover the basic
objectives of providing a quality parks system for all users, but more policy
should be considered for addressing facilities, coordination with trails and
development planning, and in addressing park system nomenclature.
Intergovernmental Coordination
The City of Ocoee is surrounded by several jurisdictions including Orange
County, the City of Apopka, the City of Winter Garden, and the City of
Windermere. The existing policies call for continued coordination with these
adjacent jurisdictions. Currently, the Intergovernmental Coordination Element
contains policies addressing notification of adjacent jurisdictions of
Comprehensive Development Plan amendments in the City, review of
development proposals for potential impacts on adjacent jurisdictions, and
City of Ocoee
Evaluation and Appraisal Report
compatibility of new development with adjacent development in other
jurisdictions. The Element also requires that the City review and respond to
development proposals from other adjacent jurisdictions that may impact the
City.
The City adopted an amendment to the Intergovernmental Element in 2008 in
accordance with the Florida Statutes requirement that "Each county and each
municipality within the county, unless exempt or subject to waiver, must adopt a
public school facilities element that is consistent with those adopted by the other
local governments within the county and enter into the interlocal agreement
pursuant to s. 163.31777." The City adopted the Public School Facilities Element
(PSFE) and Interlocal Agreement between the City of Ocoee and the School
District on October 21, 2008. This agreement has been found compliant with
state law by the Florida Department of community Affairs (DCA).
Capital Improvements Element
The Capital Improvements Element is effective at providing guidance for capital
projects that will maintain and enhance the City's adopted levels of service.
Policies within this element provide for the adopted levels of service for each type
of service and require that new development meet concurrency standards. By
policy, capital projects that will bring deficient facilities serving existing
development in compliance take precedence over new facilities for new
development.
The 5-Year Capital Improvements Program has been updated to reflect changes
relating to the Wekiva Parkway and Protection Act, the Water Supply Plan, the
Wastewater Plan, and the Public School Facilities Element. The City is currently
working on a major update to this element, due to the Department of Community
Affairs.
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