HomeMy WebLinkAboutItem F(13) First Reading - An Ordinance Relating to Recreational Impact Fees
AGENDA ITEM COVER SHEET
Meeting Date: January 18, 2005
Item # , '3
Contact Name:
Contact Number:
Johnny Farmer
Ext. 5001
Reviewed By:
Department Director:
City Manager:
787'
,
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Subject: Recreational Parks Impact Fee
Background Summary:
On September 18, 2001, the City Commission adopted Ordinance 2001-24, which amended the
Recreational Parks Impact Fee Ordinance (Ordinance 90-15). One Recreational Park Impact Fee
of $500 was assessed per new residential unit. This amount was based on projected future
recreation needs valued at $6,844,633.96 divided by 13,687 new residential units.
During 2002 and 2003, the Parks and Recreation Staff re-evaluated the future parks and recreation
needs in the City, and the amount of those needs come to $20,155,000.
If this figure were divided by the projected 12,288 new residential units, the new Recreational Park
Impact fee would be $1640.22.
Staff has contacted other Cities in the surrounding areas, and the highest impact fee being charged
for Parks and Recreation at the present time, is in the City of Winter Park ($2,000), followed by the
City of Oviedo ($1,201) and the City of Winter Springs ($914.53).
Staff believes that due to the cost of the future parks and recreation needs in the City of Ocoee, the
City's Recreational Park Impact Fees should be increased to $1640 per residential unit.
Issue:
Should the Mayor and City Commissioners adopt an ordinance to increase the Recreational Park
Impact Fees?
Recommendations
Staff recommends the Mayor and City Commissioners adopt an ordinance to increase the
Recreational Park Impact Fee from $500 per residential unit to $1,640 per residential unit.
Attachments:
City of Ocoee - Parks and Open Space Impact Fee Study - Revised April 2004
Park Impact Fee Comparison
Recreational Park Impact Fee slide presentation
Recreational Park Impact Fee Ordinance
Financial Impact:
The increased impact fees would allow the City to purchase land and develop the recreational
facilities that will be needed in the future to accommodate the projected growth in the coming years.
Type of Item:
~ Public Hearing
~ Ordinance First Reading
o Ordinance First Reading
o Resolution
o Commission Approval
o Discussion & Direction
For Clerk's Deot Use:
o Consent Agenda
o Public Hearing
o Regular Agenda
o Original Document/Contract Attached for Execution by City Clerk
o Original Document/Contract Held by Department for Execution
Reviewed by City Attorney
Reviewed by Finance Dept.
Reviewed by ( )
o N/A
o N/A
o N/A
City Manager
Robert Frank
Commissioners
Danny HowelL District 1
Scott Anderson, District 2
Rusty Johnson. District 3
Nancy J. Parker, District 4
Mayor
S. Scott Vandergrift
STAFF REPORT
TO:
The Honorable Mayor and City Commissioners
FROM:
Johnny Farmer, Parks and Recreation Director
DATE:
December 6, 2004
RE:
Recreational Park Impact Fees
ISSUE
Should the Mayor and City Commissioners adopt an ordinance to increase the Recreational Park Impact Fee
from $500 per residential unit to $1,640 per residential unit?
BACKGROUNDIDISCUSSION
On September 18,2001, the City Commission adopted Ordinance 2001-24, which amended Ordinance 90-15
and increased the Recreational Parks Impact Fee to $500 per residential unit. This was based on future
recreation needs valued at $6,884,633.96, which was divided by the projected 13,687 new residential units that
would be built in the City by 2020.
During 2002 and 2003, Parks and Recreation Staff re-evaluated the future recreation needs and the value of
these needs are projected at $20,155,000. If this figure were divided 12,288, which are the projected new
residential units that will be built by 2020, the impact fee would be $1,640.22.
The Cities of Winter Park, Oviedo, and Winter Springs have increased their Recreational Parks Impact Fees to
meet their future needs, and for the City of Ocoee to provide for it's future needs, the Recreational Parks Impact
Fee needs to be increased.
RECOMMENDATION
Based on the "Parks and Open Space Impact Fee Study" revised April 2004, the Staff recommends the Mayor
and City Commissioners adopt an ordinance to increase the Recreational Park Impact Fee be from $500 per
residential unit to $1,640 per residential unit.
(enter of Good L . '
'\, 'o-e l~i~
REVISED
APRIL 2004
CITY OF OCOEE
TABLE OF CONTENTS
SECTION ONE: INTRODUCTION........ ./............. ................. .......................;. .'..:.... ........ ...... ....... 4
1.1 BACKGROUND................................................................... ................ ............. ...... .............. .......... ...........4
1.2 NEED FOR IMPACT FEES.................................................... .............. ............. .............. .............. ............ ...4
1.3 EXISTlNG RECREATION IMPACT FEES............................... ................... ....................................... .............4
1. 4 AUTHORIZATION................................................................................................................................ ....5
SECTION TWO: BASIS FOR IMPACT FEES ............................................................................ 6
2.1 LEGAL CRITERIA ................................ ............... ......................................... .................. ........................ ...6
2.2 REGIONAL AND STATEWIDE USE OF IMPACT FEES....................................................................................8
SECTION THREE: IMPACT FEE METHODOLOGy................................................................ 10
3.1 BACKGROUND...................................................... ........ .......................... ..... ......... ...... ......... ............... ...10
3. 2 POPULATION PROJECTION...................... .............. .............. ......... ....................................... ............... ...10
3.3 SERVICE STAN DARDS...................................... ............... ....... ...... ........................................................ ..10
3.4 METHODOLOGY APPROACHES........... ............................... .................................. ........................ ......... ..11
3.5 NEEDS ASSESSMENT............................................................................................ ...... ............... .......... ..11
3.6 DISTRIBUTION OF COSTS............................................. ......... ........................ ...... ....... ................... .... ...12
3. 7 OPERATIONAL CONSIDERATIONS............................................................................... ................ ...... .... .12
3.8 PERSON N EL CONSIDERATIONS.................................................................................... ....................... ...12
3.9 FINANCIAL CONSIDERATIONS................................... .................................................... .................... ....12
3.10 SPEOFIC METHODOLOGIES................................................. ...... ......................... ........ ................... ..... .13
SECTION FOUR: POPULATION AND LAND USE .................................................................. 16
4.1 BACKGROUND........................................................................................... ......................................... ...16
4.2 HISTORICAL COMMUNITY GROWTH... .......................... ......... .................................... ............................ .17
4.3 GROWTH PATTERNS...................................................................... ..................................................... ..17
4.4 GENERAL POPULATION AND EMPLOYMENT PROJECTIONS ....................................................................... 22
4.5 POPULATION AND DWELLING UNIT PROJECTIONS.. ................................................................................ 22
SECTION FIVE: RECREATION SERVICES... ....................................................... .................. 24
5.1 OPERATIONAL BACKGROUN D ........................................................................................... .....................24
5.2 SERVICE ACTIVITY.................................................... ............................................................................ 24
5.3 PERSONN EL LEVELS................................................................................................ ..............................24
5.4 ANALYSIS OF EXISTING RECREATION FAOLITIES ................................................................................... 24
5.5 RECREATION IMPACT FEE DETERMINATION .... ...... .................................. ............................................... 35
SECTION SIX: CONCLUSIONS. .................. ........................ ............................ ................ ....... 36
RECOMMENDED RECREATION AND OPEN SPACE IMPACT FEE RATE............................................................... 36
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY PAGE 2
CITY OF OcOEE
LIST OF TABLES
TABLE 1 PARKS AND OPEN SPACE IMPACT FEE COMPARISON BY COMMUNITY
TABLE 2 GENERALIZED PARKS AND OPEN SPACE IMPACT FEE METHODOLOGY
TABLE 3 1997 ExISTlNG POPULATION AND EMPLOYMENT JPA
TABLE 4 YEAR 2020 POPULATION PROJECTIONS IN JPA
TABLE 5 YEAR 2020 DWELLING UNIT PROJECTIONS IN JPA
TABLE 6 POPULATION GUIDELINES
TABLE 7 PARKS AND OPEN SPACE DEFIOENOES BY 2020
TABLE 8 ACTIVITY BASED RECREATION GUIDELINES
TABLE 9 PARKS AND OPEN SPACE ExISTING FAOLITY INVENTORY
TABLE 10 CURRENT RECREATION FAOLITY DEFIOENOES
TABLE 11 NUMBER OF ACRES NEEDED TO MAINTAIN THE ADOPTED LEVEL OF SERVICE
TABLE 12 OCOEE PARKS AND OPEN SPACE PROJECTED FAOLITY NEEDS FOR 2020
9
15
18
22
23
25
26
29
31
32
33
34
LIST OF FIGURES
FIGURE 1
FIGURE 2
FIGURE 3
ExISTING LAND USE MAP
FUTURE LAND USE MAP
1999 AMENDED JPA
19
20
21
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY PAGE 3
CrN OF OCOEE
SECTION ONE: INTRODUCTION
1.1 BACKGROUND
)
The City of Ocoee is located in the heart of West Orange County. In 1990, Ocoee
comprised approximately 12.5 square miles and the U.S. Census Bureau count estimated
the population of Ocoee at 12,778. Since 1990, the City population has increased 90
percent to 24,391 (2000 Census), annexed more than 2,500 acres, and increased the land
area to approximately 16.4 square mile. Large tracts of developable land, excellent quality
of life, proximity to employment centers and area attractions among other amenities will
continue to make Ocoee an attractive area for residential and employment growth.
J
1.2 NEED FOR IMPACT FEES
During the past several years, many local governments have been faced with the problem of
funding significant infrastructure improvements necessitated by rapid growth. In order for
communities to maintain historical levels of selVice, sizable capital expenditures must be
made to support operations. The combined need to construct facilities, purchase equipment,
and add manpower to operational budgets has outstripped the financial abilities of both small
and large communities.
Local governments in Florida have used impact fees to help off-set the cost capital facilities
and equipment caused by rapid growth. Impact fees are a one-time charge imposed on new
development as a means of contribution toward the proportionate cost of new publiC facilities
and equipment necessary to maintain adequate level of service standards within a
community. The purpose of the impact fee is to impose growth-related capital costs to those
users creating the need to such costs. Thus, not to impose a financial burden upon existing
residents. Ocoee currently imposes impact fees for roadways, police, fire, recreation, water,
and wastewater to assist in maintaining adequate public facilities within the City.
1.3 EXISTING RECREATION IMPACT FEES
The Mayor and City Commissioners adopted Ocoee's first Recreational Park Facilities
Impact Fee Ordinance in April 1989, as Ordinance 89-14 (the "Ordinancej. The ordinance
was updated in July of 1990 to revise the fee schedule for Community and Neighborhood
Recreational Park Impact Fees. The Ordinance is section-based and divided the City into
three Neighborhood Park impact fee areas: North East, North West, and South. The impact
fee differs for each of the areas.
1
On September 18, 2001 the Mayor and City Commission updated the Recreational Park
Impact Fee, which created one Recreational Park Impact Fee of $500 per residential unit.
Over the past several years, the City has experienced substantial increases in service
requirements for the Parks and Recreation Department.
Ocoee is meeting the basic needs within the current framework of the existing Ordinance.
However, based on unprecedented growth and population projections, the Ordinance will not
produce revenue sufficient to continue to meet the City's needs in the future. Recreational
Facilities and equipment are now being utilized near capacity levels, and the City
anticipates that additional significant capital expenditures will be necessary in the
future to maintain historical service standards.
CI1Y OF OCOEE - PARKS Be OPEN SPACE IMPACT FEE STUOY
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CITY OF OCOEE
SECTION TWO: BASIS FOR IMPACT FEES
2.1 LEGAL CRITERIA
In Florida, three landmark court cases serve as the primary basis for setting impact fees and
administering the way in which moneys are utilized. These legal citatio'ns are as follows:
· Contractors and Builders Association of Pinellas Countv v. Citv of Dunedin. 329 So. 2d 314
(Fla. 1976);
· Hollvwood. Inc. v. Broward Countv. 431 So. 2d 606 (Fla. 4th DCA), cert. denied, 440 So. 2d
352 (Fla. 1983); and
· Home Builders and Contractors' Association of Palm Beach Countv v. Board of Countv
Commissioners of Palm Beach Countv, 446 So. 2d 140 (Fla. App. 4th DCA 1983).
Florida statutes do not specifically govern impact fees. These cases are used as precedents to
enable local governments to levy fees for specific capital needs caused by growth. Such fees
are limited to those services where a direct relationship can be shown between the amount
charged and proportionate public facilities received.
In addition to Florida case law, there are numerous landmark cases that have been heard in
other states which also help guide the administration of impact fees. A summary of significant
legal criteria which is used to develop Ocoee's Parks and Open Space Impact Fee is as follows:
"RATIONAL NEXUS" TEST
There must be a reasonable relationship or connection between community growth generated
by new development and the need for additional facilities to accommodate that growth. In
addition, the expenditure of any funds collected from new development must bear a reasonable
relationship to the resulting benefits which accrue to that development.
WINDFALLS
The system of impact fees should be set up to ensure that there is no intentional windfall of
revenue to benefit existing residents or users. New users should pay only their proportionate
share of any new facilities which benefit the entire community.
IMPROVEMENTS TO SERVICE LEVELS
New users can not be required to pay to correct existing service capacity deficiencies unless all
users pay an equitable proportion of the cost.
EXCESS CAPACITY
Impact fee funds collected for new facilities and equipment must only be used to cover the
costs of increased capacity necessary to reasonably satisfy the incremental service needs
caused by growth. If excess service capacity is planned, which will benefit other existing or
future users, another revenue source or payment method must be used to support the extra
costs.
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
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CITY OF OCOEE
OPERATIONAL COSTS
Impact fees must only be used for capital facilities and equipment costs. Continuing operational
and maintenance costs must be derived from other sources. Typically maintenance costs for
capital facilities and equipment are paid for from general revenue funds.
TRUST FUNDS
Revenue generated by impact fees must be set aside in specific trust funds to ensure that
moneys collected are properly accounted for and used for the lawful purposes in which they
were intended. .
UNIQUENESS PRINCIPAL
Impact fee rates must be established based upon the unique physical and economic attributes
of individual communities. Each local government is required to analyze its own development
and projected growth-related needs within the context of historical service levels leading to
impact fees specifically tailored to fit those requirements.
CREDITS
To ensure that new development does not pay twice for community facilities, consideration
should be given to how new development has possibly contributed to the payment of existing
facilities and how it will potentially contribute to the payment of future capital improvements.
OFF-SETTING CONTRIBUTIONS
Large-scale projects typically provide certain on or off-site capital improvements which may limit
the extent of impacts created or eliminate the impacts generated by the development. Impact
fee ordinances are generally structured to permit individual review of such cases to ensure that
impact fees ar~ reduced or eliminated in recognition of off-setting contributions.
EXTRAORDINARY COSTS
In situations where capital facilities or acquisitions are proportionately greater than normal, due
to unique circumstances, extraordinary costs may be passed on to selected users. Where
specific facilities or equipment is required to maintain service standards for a particular user,
group of users, or area, impact fees may be adjusted to reflect that need. Many communities
establish specific "benefit zones" to more equitably apportion capital costs based upon similar
needs.
SUFFICIENCY OF BENEFIT
Impact fees must be expended in a manner which reasonably benefits the contributors.
Depending upon the type of fee and the capital facilities provided, a rational relationship must
be established between the contribution made and the benefit received. Typically, distance is
used as the main determinant of benefit with the assumption that the farther an improvement is
from the user, the less substantial the relationship. In some cases, impact fee improvements
must be constructed in close proximity to a development to ensure sufficiency of benefit. For
other types of impact fees, it is sufficient to demonstrate community-wide benefit which also
favorably impacts the contributing development. As with extraordinary costs, "benefit zones"
may be established for certain types of improvements to ensure that funds are expended in
close proximity to the contributors.
TIMING OF EXPENDITURES
It is important to establish a capital improvements program which provides for expenditure of
funds within a reasonable time frame of when the moneys are collected. The greater the time
period between collection and actual expenditure of funds, the less likely that reasonable
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 7
Cm OF OCOEE
relationship may be demonstrated. Even though there are no specific guidelines, many
communities limit the expenditure of funds to a six-year period from time of collection to
correspond to their general Capital Improvements Program. Any funds which have remained
in the trust fund of more than six years are typically refunded with interest to the fee payer or
successor in title.
FAIRNESS DOCTRINE
The basic requirement of a legally defensible impact fee ordinance is its Kfaimess".
Communities which have gone to all reasonable lengths to ensure that impact fees have
been imposed in an equitable and pragmatic manner have the least likelihood of being
challenged in court. It is important to consider Kfaimess" aspects not only within the
methodology used to establish the impact fees, but also within the actual ordinance itself
which establishes the manner in which fees will be administered.
2.2 REGIONAL AND STATEWIDE USE OF IMPACT FEES
It is important to recognize the regional statewide use of recreation and open space impact
fees. By understanding the extent of impact fee usage and the individual associated costs, a
more reasonable basis may be established to help guide the development of fees in Ocoee.
Even though impact fee usage is based upon the unique characteristics of each community,
it may be assumed that fees levied for the same purposes at rates similar to those imposed
in comparably sized areas would be less likely to be challenged.
City Staff recently conducted a telephone survey of 17 cities in a tri-county area composing
of Orange, 'Seminole, and Osceola Counties. Of the 17 communities polled, 13 impose a
type of Parks and Open Space Impact Fee. Table 1 provides a detailed comparison of the
specific fees charged in each of these communities. Based upon the infonnation presented,
it is apparent that there is a sizable range of fees imposed depending upon the specific
circumstances of each community. Of the 13 cities that impose a parks and open space
impact fee, only two of the cities assess the fee based on the type of residential unit. The
average recreation and open space impact fee assessed for the 11 cities is 595.76 per
dwelling unit. The highest impact fee is $2,000 per unit (City of Winter Park) and the lowest
is $220 per dwelling unit. (City of St. Cloud). There are four cities with impact fees higher
than the City of Ocoee. Thus, exists the need to conduct an impact fee study and revise the
impact fee to meet the needs of the city.
CITY OF OCOEE - PARKS & OPEN SPACE IMPACT FEE STUDY
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City of Ocoee
TABLE 1
PARKS AND OPEN SPACE IMPACT FEE COMPARISON
BY COMMUNITY
COUNTY/CITY RECREATION IMPACT FEES
UNITS OF MEASURE OCOEE fA NE NW
WINTER GARDEN (fypE) SF MF
ALTAMONTE SPRINGS (fypE) SF MF
OVIEDO (# BDR.) UP TO 2SDR. 3SDR. +
S
MH
ORANGE COUNTY
ApOPKA
BELLE ISLE
MAITLAND
OAKLAND
OCOEE
ORLANDO
WINTER GARDEN
WINTER PARK
241.05/DU
N/A
N/A
350/DU
500
N/A
671
2.000
OSCEOLA COUNTY
KISSIMMEE
ST. CLOUD
300/DU
220/DU
SEMINOLE COUNTY
ALTAMONTE SPRINGS
CASSELBERRY
LAKE MARY
LONGWOOD
OVIEDO
SANFORD
WINTER SPRINGS
31 1.21
390/DU
335/DU
N/A
1.201
297.61/DU
928
CITY OF OCOE~
SECTION THREE: IMPACT FEE METHODOLOGY
3.1 BACKGROUND
Numerous methods are used to determine the proportionate or fair share impact fee rates to be
imposed on new development within a community. Generally, the complexity of the analysis
and rate formulafion is related to the size of the community. The needs analysis of a large
county may be more involved than that of a small city. Nonetheless, the same basic legal
tenants must be considered, although to a more limited degree, as community size diminishes.
The following points identify the major assumptions and approaches used in the development of
this Parks and Open Space Impact Fee analysis. Most methodology considerations are
applicable to any type of impact fee determination; however, many assumptions have been
tailored to fit Ocoee's unique circumstances and accelerated pattern of growth. It is the intent
to develop a methodology which is straight forward and easy to administer.
3.2 POPULATION PROJECTION
Regardless of the approach taken to formulate impact fee rates, a basic starting point is the
determination of an optimum horizon year population projection to which growth may be
projected. Typically, a ten to twenty year time frame is utilized to ensure that capital
improvement needs and costs are apportioned over a suitable growth segment.
Impact fee rates established by this study are based upon a twenty-year planning period, which
is consistent with comprehensive planning periods and other impact fee studies. To ensure that
there is a reasonable benefit demonstrated to those who were the initial contributors, a portion
of the moneys collected will typically be expended within five to six years from collection.
Population projection techniques vary from simple arithmetic extrapolations of historical growth
rates to complex formulas which project increases based upon numerous growth indicators. To
ensure consistency and credibility, it is preferable to use projections contained within Ocoee's
Comprehensive Plan, Ocoee's Master Transportation Plan, other impact fee studies, and
Census data.
For the purposes of this study, it is presumed that the residential and growth projections
generated for the Ocoee Transportation Master Plan, Road Impact Fee Update, and 2000
Census data are the best available forecast of residential growth for Ocoee. The growth
projections developed in the studies were a result of a comprehensive inventory of developed
and undeveloped land within the Ocoee Joint Planning Area. These projections were found to
be consistent with Ocoee's Comprehensive Plan and have been used by other regional
agencies for long range planning studies.
3.3 SERVICE STANDARDS
The standard by which a community measures its effectiveness in maintaining a certain degree
of performance is called Level of Service (LOS). Various types of LOS standards are used
based on the type of capital improvements planned. The State of Florida requires communities
to adopt specific LOS standards for such things as roadways, drainage, wastewater, water, and
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 10
CITY OF OCOEE
recreation facilities, among others, as part of their Comprehensive Plan. Typically, the same
LOS standard would be used as the basis for measurement for any related impact fee rate
study and was used as the basis for th Ocoee Parks and Open Space MasteT Plan.
, .
The State of Florida does not mandate a specific or minimum LOS standard for recreation
services. Thus, the current LOS standards used by a community for this service has been used
as the basis of measurement. The LOS for a particular type of function can be raised if a
community believes its standards fall below an acceptable norm; however, the elimination of
any deficiencies proportionate to existing development within the community would need to be
paid from sources other than impact fees. For the purposes of this study, it is presumed that
Ocoee will maintain the historic level of service standard.
In addition to the adopted LOS acreage-based standard, the City used two other measures to
project the City's future recreation needs in the Parks and Open Space Master Plan: Parks and
Open Space Guidelines and Activity Based Recreation Guidelines. The Parks and Open Space
Guidelines and Activity Based Recreation Guidelines were used as a supplement to the LOS
standard and establish a set of general criteria for determining the amount and types of park land
and outdoor recreation facilities necessary to accommodate the recreational needs of Ocoee.
The Florida Department of Environmental Protection (FDEP) recommends that communities use
national and state parks and open space guidelines and outdoor recreation guidelines as a
starting point and to address local needs.
3.4 METHODOLOGY APPROACHES
Even though there are numerous methods utilized for the calculation of impact fees, the
Standards-Driven and Improvements-Driven approaches are used most frequently. As with any
methodology, both approaches have advantages and disadvantages. In many cases, impact
fee methodology actually uses both methods to determine charges, but relies on one approach
more than the other depending upon the type of impact fee and the base data available.
A Standards-Driven approach is used when it is more difficult to project specific capital needs to
maintain service standards over time. The Impact Fee determination is based instead on the
theoretical proportionate share of the cost for capital improvements necessary to accommodate
incremental growth. Rates may be based on the historical capital investment made to support
current service levels, projections of need based upon theoretical increments of future capital
costs, or a combination of the two. This approach provides a significant amount of
administrative flexibility, although it is important to ensure that the types of capital facilities and
equipment acquired correspond to appropriate improvements to LOS standards provided.
An Improvements-Driven approach is used when it is relatively easy to project specific capital
improvements which will be necessary to maintain the service standards of the community over
time. It is also valuable in cases where projected capital costs to accommodate new growth are
disproportionately higher than historical capital investment rates. This approach is relatively
easy to administer and provides a direct relationship between community needs and the fees
charged to acquire appropriate facilities or equipment.
3.5 NEEDS ASSESSMENT
Regardless of the type of method used to calculate an impact fee, it is necessary to inventory
existing facilities and equipment to determine community investment relative to current
development. The inventory also forms the basis to assess future needs. The inventory
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
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CITY OF OCOEE
conducted for this study is based on the Parks data contained in the Parks and Open Space
Master Plan.
The inventory of capital items typically includes land and buildings used for activities, all general
administrative and operational equipment, recreation facilities and vehicles..: This inventory
would not include items which require periodic replacement or minor equipment items with a
useful life of less than three years. All capital items are estimated at their current replacement
values.
Based upon an analysis of existing facilities and equipment and how these capital items are
used in relation to various service standards, it is possible to project with some accuracy the
future capital needs of the community caused by anticipated growth.
3.6 DISTRIBUTION OF COSTS
In order to more equitably distribute the costs of growth relative to the impacts generated, some
apportionment between different types of users is generally desirable. Depending upon the
type of impact fee and the size of the community, this apportionment may range from individual
fees for a wide variety of land uses to a simpler split between residential and non-residential
uses. Typically, residential apportionment's are based upon the number of dwelling units within
that category, and non-residential apportionment's are based upon the square footage of the
structures situated within this category. These ratios are, in turn, related to projected
community growth to the horizon year of the study period.
Typically, commercial development is exempt from recreation and open space impact fees.
Thus, is not ne_cessary to consider non-residential growth in this impact fee analysis. For the
purposes of this study, only single family, multi-family, and mobile homes will be included in the
analysis.
3.7 OPERATIONAL CONSIDERATIONS
Impact fee rate determinations are based primarily on the ability of the community to maintain
the same LOS as historically provided which requires an understanding of the operational
aspects of the Recreation Department. Service is dependent upon the ability of the City to
reasonably respond to particular needs created by new residential growth.
3.8 PERSONNEL CONSIDERATIONS
The Recreation Department has a permanent staff of eleven full-time positions and ten
permanent part-time positions. A part-time summer staff composed of Recreation Aides is
necessary to administer additional programs for the children out of school for the summer.
3.9 FINANCIAL CONSIDERATIONS
For the purposes of this study, it is presumed that there is no excess operating capacity
available within the Recreation Department. In addition, the remaining impact fees are
committed to projects. In order to expand services, added capital expenditures will be
necessary. Without the use of impact fees to help fund the added costs caused by growth,
existing residents would otherwise be required to pay an increased and disproportionate
amount of taxes to support these development related needs.
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
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CITY OF OCOEE
New residential development, to a large degree, will benefit from the existing capital facilities
and equipment historically provided by the City of Ocoee. All the existing resources within the
City are immediately available to the new residents in the new growth areas. Alternatively, any
new facilities paid by new growth will be available to help serve existing devel?pment. This type
of overlapping service is inherent with community-wide services provided by parks, open space
and recreation facilities.
To maintain the LOS in new growth areas will require the community tp incur substantial capital
costs over time which otherwise would be unnecessary if growth had not occurred. Thus, it is
assumed that no credits should be considered for overlapping services areas, nor should future
new growth taxes be presumed to support any additional capital expenditures beyond those
specifically being funded by impact fees.
To the extent that any additional capital facilities are acquired in the future which improve LOS
city-wide, it is presumed that new growth will pay its proportionate share through general
taxation. In no case shall new growth be required to pay twice for any proportionate share of
community facilities provided. It is also presumed that costs associated with providing parks
and open space and recreation services to persons who do not reside in the community are
shared equitably as part of an existing agreement with Orange County.
The time/value aspects of money, in theory, also have some potential credit implications when
developing impact fee rates. This concept assumes that, due to inflation, money collected
today is worth more than the same amount collected in the future. Accordingly, the assumption
is that funds should be prorated or discounted by some percentage to create an equitable fee.
In reality, costs -for capital facilities and equipment generally rise faster than inflation. This can
be especially true where extraordinary costs are incurred due to circumstances beyond the
control of the community. Rather than attempt to estimate future costs of capital items, impact
fee rates are established based upon current needs and prices using the assumption that
interest on collected funds will hopefully keep up with escalating costs. Thus, it is important for
the City to review impact fee rates periodically and adjust them based upon the actual growth
rate experienced and revised costs for facilities. This approach will help ensure that all
contributors are paying an equitable proportion of new facility costs over time.
3.10 SPECIFIC METHODOLOGIES
As previously mentioned, there are many approaches that may be utilized to determine the
proportionate share of impact fees. For a community such as Ocoee, it is important to evaluate
only substantial components of change to develop a rate formula that is valid, yet direct and
unencumbered by data of limited value. Table 2 identifies the general determinations which
were and continue to be used to evaluate the Parks and Open Space Impact Fee Ordinance
and corresponding impact fee rate.
In addition, the Ocoee Parks and Open Space Master Plan (the "Master Plan"), was used as
the foundation for this Impact Fee Study. The Master Plan focuses on the long-range
recreational land area and equipment needs of Ocoee residents. It contains an inventory of
existing facilities and long-range population projections for the entire Ocoee-Orange County
Joint Planning Area, not just the City limits. Area-wide population estimates were used to avoid
unintended duplications in the provision of parks and to contemplate the impact of future
annexations. The Master Plan is consistent with the data and analysis requirements of Chapter
163.31776 (e), Florida Statutes.
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 13
CITY OF OcOEE
The premise of the section-based Parks and Open Space Impact Fee Ordinance is that certain
areas of the City will experience more growth than other areas and will require more parks and
facilities. However, since the inception of the Ordinance, the City has experienced tremendous
growth and growth has occurred in areas of the City sooner than anticipated.. In addition, most
of the revenues generated from the impact fee were used to upgrade': and create new
Community Parks (Le., Beech Recreation Center). Community Parks are available to the entire
population, not just one neighborhood or section. The City of Ocoee is a relatively small
community where most neighborhood and community park service areas overlap, thus Staff
recommends amending the Ordinance to abolish the three sections and create one Community-
wide impact fee for the entire City. Adopting a Community-wide parks and open space impact
fee would permit the City the ability and flexibility to use impact fee revenues in areas of the
City experiencing growth sooner than anticipated. It also takes into account existing un-funded
deficiencies that have been carried over from the last impact fee update that are the result of
new growth.
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 14
CITY OF OCOEE
TABLE 2
GENERALIZED PARK AND OPEN SPACE
IMPACT FEE METHODOLOGY
TASK
INVENTORY THE EXISTING RECREATION AND OPEN SPACE FACILITIES.
.
.
PROJECT THE ACREAGE NECESSARY TO MAINTAIN THE ADOPTED RECREATION AND OPEN
SPACE LOS STANDARD BASED ON THE POPULATION PROJECTION FOR THE PLANNING AREA
FOR 2020.
.
PROJECT THE NUMBER AND TYPE OF RECREATION FACILITIES NEEDS BASED ON OCOEE'S
RECREATIONAL GUIDELINES AND POPULATION ESTIMATE FOR THE PLANNING PERIOD.
.
DETERMINE THE EXISTING SURPLUSES AND / OR DEFICIENCIES WHICH MAY EXIST RELATIVE TO.
THE ADOPTED ACREAGE-BASED LOS STANDARD AND ESTABLISHED RECREATION GUIDELINES.
.
DETERMINE THE CAPITAL INVESTMENT NECESSARY TO MAINTAIN THE ADOPTED RECREATION
AND OPEN SPACE ACREAGE-BASED LOS STANDARD AND FACILITY NEEDS BASED ON THE
RECREATIONAL GUIDELINES.
.
DETERMINE THE PROJECTED POPULATION FOR THE PLANNING AREA THROUGH THE PLANNING
PERIOD (2020).
.
INVENTORY THE EXISTING DEVELOPABLE RESIDENTIAL LAND WITHIN THE PLANNING AREA.
.
DETERMINE THE PROJECTED NUMBER OF DWELLING UNITS TO BE ADDED TO THE CITY
THROUGH THE PLANNING PERIOD BASED ON CURRENT DEVELOPMENT TRENDS AND LAND USE
ENTITLEMENTS.
.
DETERMINE THE COST OF THE RECREATIONAL FACILITIES REQUIRED TO ACHIEVE THE ADOPTED
LOS STANDARD ESTABLISHED BY RECREATIONAL GUIDELINES.
.
ESTIMATE THE PER ACRE COST OF LAND REQUIRED TO MEET THE ADOPTED ACREAGE-BASED
LOS STANDARD.
.
COMPARE THE PROJECTED COSTS IN RELATION TO THE EXISTING IMPACT FEE.
.
EVALUATE THE CURRENT SECTION-BASED IMPACT FEE STRUCTURE AND RECOMMEND AN
ALTERNATIVE
.
COMPARE THE PROJECTED IMPACT FEE RATE TO RATES ASSESSED BY SIMILAR COMMUNITIES.
.
DEVELOP AN EQUITABLE IMPACT FEE RATE WHICH CONSIDERS ALL STUDY PARAMETERS.
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 15
CITY OF OCOEE
SECTION FOUR: POPULATION AND LAND USE
4.1 BACKGROUND
, .
The population projection through the planning period forms the basis from which growth is
determined. A corresponding projection of land necessary to support the anticipated population
forms the basis for determination of numbers of dwelling units related to operational
requirements. It is important to project these growth determinants as accurately as possible to
ensure that impact fee rates are realistic and equitable.
In 1994, the City and Orange County entered into a Joint Planning Area Agreement (JPAA).
The Joint Planning Area was mutually agreed to and based on "the logical extension of the City
for the following 20 years. This Agreement permits the City to annex all areas within the Joint
Planning Area (JPA) without objection from the County, provided it meets the State criteria for
annexation. Accordingly, the City plans for its future growth (the "planning period") for the
entire JPA. Thus, the population and dwelling unit projections used in the study are based on
the area contained within the JPA, not just the City limits. Planning for the entire JPA permits
the City the ability to: avoid the duplication of services, and more accurately estimate the cost
for providing services in the future.
Typically, the use of projections contained within the Ocoee Comprehensive Plan would be
used for this exercise; however, the data used to develop this analysis was based upon 1987
population estimated by BEBR in the, Florida Estimates of Population and projected to the year
2010. In order to derive the best data and population projections, in 1997 the Gcoee Planning
Department projected population and employment growth to the year 2020 for the entire Ocoee
Joint Planning Area. These projections were the result of a comprehensive review of numerous
data sources related to population and employment, including:
· A DETERMINATION OF FUTURE ZONING AND PERMITTED USES, CONSISTENT WITH THE FUTURE LAND USE MAP OF THE
OCOEE COMPREHENSIVE PLAN, INCLUDING PERMmED DENsmES;
. AN INVENTORY OF ALL UNDEVELOPED LAND;
· AN INVENTORY OF ALL WETLANDS, FLOODPLAINS AND CONSERVATION AREAS;
· AN INVENTORY OF ALL APPROVED AND PROPOSED DEVELOPMENTS, SUBDMSION PLANS AND PLANNED UNIT
DEVELOPMENTS (PUDs);
· INSTITUTE OF TRANSPORTATION ENGINEERS (ITE) DATA;
· TRENDS IN POPULATION GROWTH; AND
· CONSULTATION WITH THE ORANGE COUNTY SCHOOL BOARD (FOR FUTURE SCHOOL ENROLLMENT AND
CONSTRUCTION).
Where possible, the 1997 employment and population data was updated using the 2000
Census population estimate for Ocoee.
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 16
CITY OF OCOEE:
4.2 HISTORICAL COMMUNITY GROWTH
Ocoee is one of the fastest developing communities in Central Florida, with- recent growth rates
greater than that of both Orange County and the entire metropolitan region. From 1980 to
1990, the City experienced a population growth rate of 64 percent, roughly equivalent to that of
the metropolitan area. However, between 1990 and 1995 the City's population grew from just
under 13,000 to approximately 18,500, an increase of 45 percent. This five year growth rate
was almost three times that of both Orange County and the entire metropolitan area, which had
population growth rates of 12 and 14 percent. Over the same time period, employment in
Ocoee grew from just under 5,400 to almost 6,800, a 25 percent increase. This compares to
population employment growth rates of 15 and 17 percent in Orange County and the Orlando
metropolitan area.
Subsequent to 1995, the City's population has grown at an even faster rate. According to a
voter redistricting study conducted for the City in June of 1997, Ocoee's population was
estimated at just over 21,000, almost 14 percent larger than it was two years earlier. Four
years later, the 2000 Census population figures were released, which estimated Ocoee,
population to be 24,391-an increase of 16 percent for the subsequent three years. Ocoee's
phenomenal growth in relation to Orange County and the region is driven by both the availability
of inexpensive developable land and easy access to other regional activity centers.
Historically, the City of Ocoee's economy was predominately agriculture, livestock and related
activities. However, the series of crop freezes in the 1980s virtually eliminated Ocoee's status
as an agricultural center. The subsequent abundance of developable land, coupled with
excellent acces~ to regional transportation facilities, paved the way for rapid residential growth
within the City. In addition to its role as a suburban community serving major employment
centers such as downtown Orlando and Disney, Ocoee has also experienced growth in
commercial, service and industrial land uses, as evidenced by the recent opening of the West
Oaks Mall and Health Central Hospital.
4.3 GROWTH PATTERNS
A majority of Ocoee's population has historically been located in a relatively small geographic
area oriented toward the City's traditional center along Bluford Avenue. This area is roughly
defined by White Road to the south, Clarcona-Ocoee Road to the north, Bowness Road and
Bluford Avenue to the west, and Clarke Road to the east. Subsequent to this traditional
residential development pattern, a shift toward the northeast occurred along Silver Star Road
(SR 438), Apopka Vineland Road, and A.D. Mims Road in the form of new subdivisions. More
recently, the extension of Clarke Road from SR 50 to Clarcona-Ocoee Road has spurred a
significant portion of the City's new subdivision construction. Another significant source of
recent population growth in Ocoee has been the construction of new subdivisions along
Maguire Road to the south, between Tomyn and Roberson Roads.
Although the residential development patterns in Ocoee have traditionally consisted of single
family homes, more multi-family developments are anticipated to occur. Recent estimates by
the Ocoee Planning Department place the 1997 population of the OcoeelOrange County Joint
Planning Area (JPA) at just over 35,000. This population consisted of approximately 10,736
single family residential units and 967 multi family units. The 1997 Ocoee JPA is shown on
Figure 1, which is Ocoee's Existing Land Use Map as depicted in the Comprehensive Plan.
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 17
CITY OF OCOEE
Employment in Ocoee was traditionally supported by citrus, cattle and other activities related to
agriculture, as well as small businesses in and around the town's historic center offering goods
and services to_the local population. As residential land uses have begun to rapidly replace
previously agricultural land uses, employment in the City has grown as well, although at a
lesser rate. The evolution of SR 50 into a major commercially oriented roadway has been a
major source of this growth. Commercial centers have begun to develop where north-south
roads, such as Maguire Road, intersect with SR 50. This growth continues to occur along the
SR 50 corridor, highlighted by the opening in 1996 of the West Oaks Mall, a regional shopping
center at the intersection of Clarke Road. The West Oaks Mall has a market area which
extends throughout much of Central Florida, including lake and Orange counties.
In addition, Health Central Hospital, a regional health care facility, opened just west of the mall
on SR 50. West of the town's center, along Story Road and Bowness Road, the City has
developed a relatively strong industrial base, highlighted by such businesses as the Central
Florida Auto Auction, and SYSCO, a food distributor. A commercial activity center has recently
developed at the intersection of Clarke Road and Silver Star Road, with the opening of two
shopping centers in recent years. A summary of estimated population and employment
characteristics in the Ocoee / Orange County Joint Planning Area is shown in Table 3.
TABLE 3
1997 EXISTING POPULATION AND EMPLOYMENT
OCOEElORANGE COUNTY JOINT PLANNING AREA
% %
AREA 1980 1990 CHANGE 1997 CHANGE
POPULATION
OCOEE 7,803 12,788 64% 35,105* 175%
ORANGE COUNTY 470,865 677,491 44% 777,556 15%
METRO AREA 739,058 1 ,224,844 66% 1,428,620 17%
EMPLOYMENT
OCOEE N/A 6,534 N/A 8,892* 36%
ORANGE COUNTY N/A 350,953 N/A 515,412 47%
METRO AREA N/A 612,750 N/A 729,583 19%
SOURCE. OCOEE PLANNING DEPARTMENT, 1997.
. THE OCOEE AREA, AS IT PERTAINS TO 1997 POPULA TION AND EMPLOYMENT, INCLUDES PORTIONS OF UNINCORPORA TED
ORANGE COUNTY. (1980 AND 1990 ESTIMA TES INCLUDE ONL Y THE CITY)
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 18
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Page 21
CITY OF OCOee
4.4 GENERAL POPULATION AND EMPLOYMENT PROJECTIONS
The historic growth discussed in the previous sections demonstrates Dcoee's substantial
increases in population and employment over the last several years. It is projected that the
same growth patterns will continue in the future as depicted on the Future Lanp Use Map of the
Comprehensive Plan (Figure 2). Although, most near-term residential growth is anticipated to
continue to occur in the northeast, northwest, and southern sections of the City, with the
completion of the Western Expressway and the extension of Orange County utilities in the
northern portion of the JPA.
As mentioned previously, the projections were the result of a comprehensive review of
numerous data sources related to population and employment, including: future zoning and
permitted uses, the Ocoee Comprehensive Plan, Parks and Open Space master Plan, an
inventory of all undeveloped land, an inventory of all wetlands, floodplains and conservation
areas, an inventory of all approved and proposed developments, subdivision plans and planned
unit developments (PUDs), Institute of Transportation Engineers (ITE) data, trends in
population growth, information provided by the Orange County School Board (for future school
enrollment and construction) and 2000 Census data. The results of the data analysis and
individual forecasts for population and employment are discussed below.
4.5 POPULATION AND DWELLING UNIT PROJECTIONS
Since the inc~tion of the JPAA in 1994, the origil"'!al JPA Map has been amended three times;
via the 1st, 3 & 4th Amendments to the JPAA, the 2nd Amendment was a text change to the
JPA. The 3rd Amendment to the JPA added property in the northeast portion of the existing
JPA and removed property from both the eastern and southwestern portions of the JPA. The
boundary change to the JPA also resulted in a change in the 1997 population projections for
2005, 2010, and 2020. In addition, the JPA was again amended in January of 2001 with the
City's purchase of the Coke Property. The 4th amendment to the JPA resulted in changes to
land uses to the JPA Map which resulted in a reduction of population in the northwestern area
of the JPA (Figure 3). The net result is a decrease in the anticipated population projections for
the balance of the planning period. The initial 2020 population projection, based on the original
JPA, was 75,918. The revised 2020 population projection for the amended JPA is 68,200, a
difference of 7,718. The population projections used in the Parks and Open Space Master Plan
were revised and reflect the changes in the 3rd & 4th Amendments to the JPAA. Accordingly,
the revised population and dwelling unit projections are used in this study as well. The results
of the Dcoee population projections for 1997 and 2020 can be seen in Table 4.
TABLE 4
YEAR 2020 POPULATION PROJECTIONS
OCOEElORANGE COUNTY JOINT PLANNING AREA
AREA
POPULA TION
OCOEE
ORANGE COUNTY
METRO AREA
1997
35,105*
777,556
1,428,620
2020
68,200**
1 ,231,100
2,078,400
%
CHANGE
94%
58%
45%
SOURCE: OCOEE PLANNING DEPARTMENT, 1997.
"THE OCOEE AREA, AS IT PERTAINS TO 1997 POPULATION PROJeCTIONS
"" THE OCOEE AREA, AS IT PERTAINS TO THE 2020 POPULATION PROJECTIONS, BASED ON THE:fW & 4TH AMeNDMeNTS TO THe JPA.
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 22
CITY OF OCOEE
Based on the projections in Table 4, the majority of the population growth will occur in the north
and south portions of the study area. The most dynamic growth areas are located along the
Clarcona-Ocoee Road, Clarke Road, Ocoee-Apopka Road and Maguire Road corridors, while
pockets of population growth are also projected to occur adjacent to SR' 50, and Old Winter
Garden Road. The prevailing pattern of single family subdivisions will likely continue into the
future. However, some growth will occur in multi-family residences as well.
Based on the 1990 census data, BEBR's 1997 population estimate and the inventory of existing
land uses, Ocoee has an average of 3.03 persons per single family dwelling unit and 1.72
persons per multi-family dwelling unit. Assuming that these historic numbers will remain
consistent into the future, the number of future dwelling units were projected using the amount
of available developable land, permitted densities (using existing zoning, the Comprehensive
Plan and Land Development Code), known permitted subdivisions, Planned Unit Developments
(PUD's) and Development of Regional Impacts (DRl's). The projected number of dwelling units
are shown in Table 5 below.
TABLE 5
YEAR 2020 DWELLING UNIT PROJECTIONS
OCOEElORANGE COUNTY JOINT PLANNING AREA
AR~ 1~7 2~O
SINGLE FAMILY 10,736* 20,963**
MULTI-FAMILY 967 4,436
TOTAL 11,703 25,399
CHANGE
10,227
3,460
13,687
SOURCE: OCOEE PLANNING DEPARTMENT, 1997.
"THE OCOEE AREA, AS IT PERTAINS TO 1997 POPULATION PROJECTIONS
.. THE OCOEE AREA, -AS IT PERTAINS TO THE 2020 POPULATION PROJECTIONS, BASED ON THE:fID & 4TH AMENDMENTS TO THE JPA.
The 1997 dwelling units projections used in this study are based on the data collected for the
Ocoee Transportation Master Plan (1998), the data used for the Transportation Master Plan
was gathered in 1997 and included projections for portions of unincorporated Orange County,
but within the Ocoee-Orange County Joint Planning Area (JPA). As the City can assemble the
data need to update the number of building permits issued for single-and-multi-family dwelling
units since 1997, this cannot be easily done for those portions of unincorporated Orange
County within the JPA. Therefore, the 1997 dwelling unit projections have been utilized for this
study.
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 23
CITY OF OCOEE
SECTION FIVE: RECREATION SERVICES
5.1 OPERATIONAL BACKGROUND
The Recreation Department works closely with the community and the Recreation Advisory
Committee in assessing current and future recreation needs and wants of the community. The
primary goal of the Recreation Department is to deliver the highest quality facilities and
programs available. For example, the Department uses independent instructors which are
qualified in their field of expertise for the various programs offered by the Recreation
Department. The Recreation Department is divided into two divisions; the Recreation Division
and the Athletic Division. Each Division's supervisor is responsible for the operation of each
activity within their division. The supervision and coordination of special events is a shared
responsibility of the Recreation Staff. In addition to Recreation Staff, other City departments
contribute their assistance for special events on an as needed basis.
5.2 SERVICE ACTIVITY
Most of the Recreation Department's programs are initiated within the City boundaries and are
offered to citizens from Ocoee and the surrounding communities. Participants ages range from
three and four year olds in the Tiny Tot program to senior citizens in the West Orange Senior
Citizens Association. Programs are offered seven days a week, during the workday and
evening hours until approximately 10:00 p.m. The number of participants per program range
from three or four to over 400 in the adult softball program. The after school and summer day
camp programs are only offered to City residents. All other programs are offered to Ocoee
residents as well as citizens from surrounding communities.
5.3 PERSONNEL LEVELS
The Recreation Department staff currently includes eleven full-time and ten part-time staff
members. The Department also relies on several independent instructors and volunteers to
organize and operate the programs. Staff includes; one Director, three Supervisors, one
Administrative Assistant II, one Athletic Groundskeeper, three Recreation Leaders, seven
Aides, two Athletic Aides, one Teen Coordinator, and two Custodians. In addition to the
permanent staff, the Recreation Department employs fifteen part-time seasonal aides to assist
with the additional recreational programs offered during the summer months.
5.4 ANALYSIS OF EXISTING RECREATION FACILmES
The facility analysis used several guidelines contained in the Ocoee Parks and Open Space
Master Plan to evaluate the existing park and open space system and determine future needs.
These guidelines include: the adopted acreage-based LOS standard; the Parks and Open
Space Population Guidelines; and the Activity Based Recreation Guidelines. Following is a
description of the guidelines used in both the Parks and Open Space Master Plan and in this
study.
CiTY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 24
CITY OF OCOEE
LEVEL OF SERVICE
"Level of service" is the term used for the measurement of community services. With respect to
parks and open space provided by local governments, it has been common practice over the
past forty years to measure services in terms of acres per population rather than evaluating
each park type or activity. The Ocoee Comprehensive Plan includes levels of service for the
various services that the City provides (Le., water, sewer, roads, police, fire, and recreation).
The adopted level of service for parks and open space is four (4) acres per 1,000 population
served. Supplemental guidelines are identified for parks and open space areas below.
PARKS AND OPEN SPACE GUIDELINES
Although the City of Ocoee has adopted a level of service for concurrency purposes, it is useful
to establish population guidelines for each type of park facility. The population-based parks
and open space guidelines below are intended only to supplement the level of service analysis,
not replace it. These guidelines establish a set of general criteria for determining the amount
and types of park land necessary to accommodate the recreational needs of Ocoee. The
Department of Environmental Protection (DEP) recommends that communities use national and
state parks and open space guidelines as a starting point and then adjust the guidelines to
address local needs. DEP has classified parks into six categories. Following is a description of
each of the six park types and facilities that exists within the City. The City has added the
category of Natural Area Reservations to the list of park types as the preservation of natural
areas are an important component to any park and open space network. Accordingly, the
guidelines shown in Table 6 (below): Ocoee Parks and Open Space Population Guidelines
were prepared in accordance with DEP recommendations using the state and national
guidelines as a base. The following parks and open space guidelines are used later in this
report to evaluate and assess potential parks and open space deficiencies and surpluses.
TABLE 6
OCOEE PARKS AND OPEN SPACE
POPULATION GUIDELINES
PARK ORIENTATION
TYPE
POPULA TION
SERVED
NUMBER OF
EXISTING
CITY PARKS
1
2
6
6
1
1
0*
0*
ORNAMENTAL PARK
MINI-PARK
NEIGHBORHOOD PARK
COMMUNITY PARK
liNEAR PARK
URBAN OPEN SPACE PARK
NATURAL AREA RESERVATION
RESOURCE-BASED
USER-ORIENTED
USER-ORIENTED
USER-ORI ENTED
RESOURCE-BASED
RESOURCE-BASED
RESOURCE-BASED
NO STANDARD
3,000
7,500
10,000
15,000
25,000
NO STANDARD
1 THIS FOUR MILES ARE THE WEST ORANGE TRAIL WHICH IS AN ORANGE COUNTY FACIUTY
. PROPOSED A T LAKE ApOPKA PARK
Table 7 below illustrates the number of and type of parks that the City will be needed to
accommodate the projected growth by 2020.
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 25
CITY OF OCOEE
TABLE 7
PARKS AND OPEN SPACE
DEFICIENCIES BY 2020
PARK TYPE
POPULA nON SERVED
ORNAMENTAL PARK
MINI-PARK
NEIGHBORHOOD PARK
COMMUNITY PARK
LINEAR PARK
URBAN OPEN SPACE PARK
NATURAL AREA RESERVATION
N/A
N/A
7,500
10,000
15,000
25,000
N/A
DEFICIENCIES
BY THE YEAR 2020
NlA
N/A
3-4
1
4-5
2-3
N/A
The City currently has fifteen parks in its existing inventory. Below, each of the City parks are
categorized into one of the following types of parks: Ornamental Parks; Mini Parks;
Neighborhood Parks; Community Parks; Linear Parks; and Urban Open Space Parks. The City
has three undeveloped parks in the existing inventory, Hackney Prairie, South Park, and Lake
Apopka Park. Improvements to these parks are scheduled within the next five years, thus
these parks have been included in the inventory of existing parks.
ORNAMENTAL PARK
Ornamental Parks are resource-based parks with passive elements such as fountains,
gazebos, commemorative structures, statues, works of art, clock towers, plazas, sidewalks,
benches, and landscaping. They are decorative community features typically located along
major roadways, near scenic spots, or locations that establish visual connections between
community edifices. Their size is generally dependent upon their function, but they may be less
than an acre in size in certain locations. Ornamental parks are designed as urban accent
features serving the community at-large and, as such; there are no established standards for
them. The Municipal Lakefront Park is the only Ornamental Park, located between downtown
Ocoee and Starke Lake. The park includes the Withers Maguire House, City Hall, Community
Center, boat docks, new fishing pier, a gazebo, a local veteran's memorial, open space and
parking.
MINI PARK
A Mini Park is a small user-oriented park that adds park service to neighborhoods that were
originally developed without private recreation facilities. A typical mini park should serve as a
''walk to" park that might consist of a playground, swings, playground equipment, play court,
landscaping, parking area, perimeter fence, walkways, tables, and benches. Often Mini Parks
are located within three or four blocks of the population that they are designed to serve,
typically up to 3,000 persons. Generally, a mini park is up to two (2) acres in size. Ocoee
owns two mini parks that serve the abutting neighborhoods: (1) Forest Oaks Park; and (2) Palm
Drive Park. Since 1992, the City has required all new residential subdivisions to include private
recreational facilities. Thus, the City has not created any new mini parks since 1992. There are
approximately 65 acres of private park areas located within existing subdivisions.
NEIGHBORHOOD PARK
A Neighborhood Park is a medium size user-oriented park, but a conservation component may
be included as an optional feature. Neighborhood Parks form the foundation for a Community's
park system. Generally, they are located within walking distance of homes. Often
neighborhood parks are located along local streets to avoid areas of traffic congestion.
Equipment typically found in these parks include swings, playground equipment, picnic areas,
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 26
CITY OF OCOEE
play courts, play fields, baseball and softball fields, parking areas, restrooms, walking/jogging
trails, swimming pools, and tennis courts. Parks range in size from two to ten acres and serve
homes within a one-mile radius. It is estimated that these parks serve up to 7,500 persons.
Since neighborhood parks and elementary schools serve roughly the same population, it is
desirable for neighborhood parks to abut elementary and middle schools:,' Ocoee has six
neighborhood parks. Of the six parks, five are established parks; Russell Drive Park,
Parkside/Coventry Park, Tiger Minor Park, the Sorenson Junior/Senior Baseball Fields, and
Silver Glen Park. Hackney Prairie Park is slated for development in the near future.
COMMUNITY PARK
A Community Park is a large user-oriented park that provides a variety of active recreational
facilities. Facilities usually included in such a park are recreation centers, gymnasiums,
swimming pools, sports fields, tennis courts, boat ramps, parking areas, and restrooms.
Optional community park elements are covered picnic areas, gazebos, pavilions, playgrounds,
multi-purpose trails, and separate natural areas or open space. Community parks may be
located anywhere within the City, but as a "drive to" facility, significant parking should be
included in the site design. Community parks are approximately 10 to 50 acres in size. They
typically service homes located within two to five miles and up to 10,000 people. The City has
six community parks, four of which are established parks; Vignetti Park, Beech Recreation
Center, Central Park, and the Forest Lake Golf Club. South Park and Lake Apopka Park are
slated for development in the near future.
LINEAR PARKS
Linear Parks are usually developed around a natural resource such as a creek, river, wetland,
abandoned or active railroad, mass transportation corridor, utility easement, or lakeshore.
Linear parks are also often referred to as "greenways," "trails," or "multipurpose trails;" however,
these facilities have specific definitions, so the more generic term of "linear park" is used.
Linear parks may be located anywhere within the community, but trailheads should include
parking in the site design and layout to accommodate users. Depending upon their location,
linear parks may serve populated areas ranging in size from a single neighborhood to an entire
city. The benefits of a linear park system are numerous. Not only can they preserve valuable
open space and natural habitat, they can also provide a natural environment for walking,
jogging, and bicycling trails. They often serve as a transportation corridor and provide
inexpensive exercise opportunities relatively free from automobile interference. Linear parks
also create natural buffers between incompatible land uses and provide corridors for
underground utility easements. Generally, portions of the land are reasonably priced due to
existing natural resource development restrictions. The City of Ocoee does not own any linear
parks; however, Orange County has established the West Orange Trail. Four miles of the
West Orange Trail pass through the Ocoee planning area.
URBAN OPEN SPACE PARKS
Urban Open Space Parks are areas containing ecosystems in a non-disturbed state with very
few man-made intrusions. Within the urban environment, natural areas lend a certain aesthetic
and functional diversity to a park network and urban hardscape. The benefits of natural areas
are numerous and include preservation of wildlife habitat and opportunities for nature study.
When flood plains are preserved as natural areas, they offer a resource to aid in the prevention
of flooding. There are no space standards for natural areas within a City. The normal
approach of standardizing is not practical or productive in this instance since it is dependant
upon the specific environment of the area itself.
Cities should preserve urban open space that reflect the unique natural resources of the
community. Urban open space parks should be limited to recreational uses for passive
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE27
CITY OF OCOEE
recreation, interpretation, and environmental education. It is important that natural areas not be
perceived as surplus land that may be sold at a later date for development. There are a
number of public and non-profit organizations that provide funding for the development of these
types of parks. The City recently purchased wetland property along the shoreline of Lake
Apopka. This wetland area will ultimately be classified as a City-owned Urban Open Space
Park (Lake Apopka Urban Open Space Park) in the future and will be used for passive
recreation only.
NATURAL AREA RESERVAnONS (NAR's)
Natural Area Reservations are very similar to Urban Open Space Parks, but may be either
publicly owned or privately owned. NAR's can be defined as areas that offer: independence;
closeness to nature; a high degree of interaction with the natural environment; and areas which
require no organization, rules of play, facilities or installation of equipment, other than those
necessary to protect the environment. Benefits of NAR's are numerous and include the
preservation of wildlife habitat, riparian habitat, opportunities for nature study, and provide
buffers between uses. NAR's typically include floodplains, wetlands, scenic vistas, fish and
wildlife habitats, natural resource areas, landmarks, and historic areas. The City's Land
Development Code regulates development in environmentally sensitive areas by prohibiting
development in the 100-year floodplain and strongly discourages development in wetlands.
Should development in wetlands be unavoidable, destruction of the wetland must be mitigated.
Acquisition of NAR's can be accomplished through dedication, fee interest purchase,
conservation easement dedication, and conservation easement purchase. Conservation
easements provide two primary purposes: reduce the amount of development than can occur
on a property and assure that the property, environment, and open space values are preserved.
Conservation easements are tailored to meet the unique characteristics of the property and run
with the land in perpetuity.
The City has identified the remaining natural open space along shorelines of the Lake Apopka,
Lake Meadow, Lake Bennet, Prairie Lake, and Shoal Creek for preservation through NAR's
(Figure 2). Acquisition of these areas can be accomplished through dedication, purchase,
conservation easements or a combination thereof. Recreational development in these areas
should be restricted to trails and other amenities having little or no impact on the natural
environment. With regards to the shoreline along Lake Apopka, the Avanti/W est Groves
subdivision (north the proposed Lake Apopka Urban Open Space Park) will dedicate a
conservation easement (:tSO-acre) for preservation of the wetlands and riparian habitat upon
final plat approval. In addition, the City was awarded approximately $600,000 of grant money
from the St. Johns Water Management District for the acquisition and preservation of additional
wetlands along the shoreline of Lake Apopka (Crown Point:!: 100 acres), just south of the
proposed Lake Apopka Urban Open Space Park. Staff has identified approximately 608 acres
of area for Natural Area Reservations (Figure 2). The City owns or controls approximately 170
acres, anticipates dedication of or grant awards for approximately 238 acres, and purchase of
the remaining 200 acres.
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 28
CITY OF OcOEE
ACTIVITY BASED RECREATION GUIDELINES
Another guideline used to evaluate the Ocoee parks and open space system is the Ocoee
Activity Based Recreation Guidelines. Activity based guidelines help to prioritize each of the
various types of sports and activities within the system. They take into confiideration a variety
of activities popular in the Ocoee area, such as: boating and fishing; basebalr and softball; golf;
soccer; football; visiting historic sites; walking; cycling; skating; and horseback riding. The
guidelines summarized in Table 3: Activity Based Recreation Guidelines below reflect current
conditions and priorities.
TABLE 8
ACTIVITY BASED RECREATION GUIDELINES
OCOEE GUIDELINES 1 STA TE GUIDELINES 2
ACTIVITY TYPE OF POPULATION MINIMUM MAXIMUM MEDIAN
SUPPORTED: FACILITY: SERVED: POPULATION: POPULATION: POPULATION:
BASEBALL 1 FIELD 7,500 2,000 10,000 5,000
l.rrTLE lEAGUE
BASEBALL 1 FIELD 10,000 2,000 10,000 5,000
SENIOR! JUNIOR lEAGUE
BASKETBALL 1 BASKETBALL 5,000 500 20,000 5,000
COURT
BICYCUNG AND WALKING 1 UNEAR MILE OF 10,000 1,500 10,000 5,000
PAVED TRAIL
FISHING, POWER 1 BOAT RAMP LANE 12,500 1,500 12,500 5,000
BOATING, WATER-
SKIING, SAIUNG
FOOTBALL 1 FOOTBALL FIELD 25,000 4,000 25,000 6,000
GOLF 18 HOLES 62,500 25,000 65,200 25,000
HORSEBACK RIDING 1 UNEAR MILE 10,000 5,000 10,000 5,000
CLEARED TRAIL
JOGGING/ PHYSICAL 1 EXEROSE/ PAR- 50,000 10,000 50,000 15,000
ExEROSE COURSE TRAIL
NATURE STUDY AND 1 UNEAR MILE OF 10,000 6,250 10,000 6,700
HIKING NATURE TRAIL
PICNICKING PICNIC AREA 5,000 5,000 10,000 6,000
(SEVERAL TABLES &
GRILLS)
PLAYGROUND 1 PLAY AREA 5,000 500 15,000 10,000
EQUIPMENT
RACQUETBALL AND 1 RACQUETBALL / 15,000
HANDBALL HANDBALL COURT
SHUFFLEBOARD 1 SET COURTS 12,000 1,000 12,000 3,600
SOCCER 1 SOCCER FIELD 7,500 4,000 25,000 6,000
SOFTBALL FIELD (ADULT) 1 FIELD 10,000 2,000 10,000 5,000
SWIMMING POOL 4,800 sQ. FT. 35,000 1,000 50,000 25,000
POOL
TENNIS TENNIS COURT 5,000 1,000 10,000 2,000
VOLLEYBALL VOLLEYBALL COURT 10,000 4,000 12,000 6,000
1 OCOEE RECREATION DEPARTMENT
:1 THE STA TE GUIDELINES ARE THOSE PUBLISHED IN TABLE 6.4 OF THE OUTDOOR RECREATION, 1994 BY THE DEPARTMENT OF ENVIRONMENTAL PROTECTION.
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 29
CITY OF OcOEc
The City's Activity Based Recreation Guidelines were tailored to meet the City's unique
recreational needs and meet the State's recommended population served. The City believes
that the Forest Oaks Golf Club will adequately meet the needs of the community through the
planning period. In addition, there are numerous golf courses within a few minutes drive from
the City limits. The West Orange Trail is used in the same capacity as a jpgging I physical
exercise trail. Thus, only one course will be needed through the planning period. It is proposed
that the Ocoee Linear Park system will tie into the West Orange Trail and provide additional
opportunities for jogging and physical exercise trails.
FACILITIES AND EQUIPMENT INVENTORY
Currently, the City of Ocoee has the fifteen parks at its disposal to utilize for a multitude of
activities and programs. Table 9 provides a list of amenities for each of the parks. Of the City's
fifteen parks, there are three main facilities; the Community Center, Vignetti Recreation Center
and the Beech Recreation Center. The Community Center is used for a variety of programs for
the seniors. The Vignetti Recreation Center once served as a City fire house. The remodeled
fire house now offers several recreation programs to children and seniors alike, with the before
and after school programs being the most widely used. The newest addition to the City's
inventory is the Beech Recreation Center. The Beech Recreation Center was designed as a
multi-use facility, which includes conference rooms, dance and exercise rooms, a regulation
gymnasium and an Aquatic Center. It is also used as the Recreation Department's
headquarters.
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 30
CITY OF OCOEE
TABLE 9
PARKS AND OPEN SPACE
EXISTING FACILITY INVENTORY
PAAKS AcRES
1. UNIOPAL lAKVROHT PARK 10
VEl: AU. AGES GROUPS
TEGORv: ResouRCE-BASED
: STARKE IN<E
2. 0.2
3. 1/2 BASKET1!AU. COURT
1 I'OUEY!IAU. COURT
1 SeT OF SWINGS
1 SeTOFPlAYGROlINDEQUIPMEHT
IIENOiES
AAKING
4. 3 1 SeT OF SWINGS &; EQUIPMENT
PICNIC TABlES
IIENOiES
NO /lOAT RAMP
5. 4 SETS OF SWINGS &; EQUIPMENT
1 PAVlUON/ 4 CO\'EREO PICNIC TABlES
10 1IENOiES/ 1 GRIU.
1 TENNIS COURT
1 l!ASI<ETBAI.I. COURT
6. 5 SETS OF SWINGS &; EQUIPMENT
1 PAVIUONI 2 COVERED PICNIC TABlES
IIENOiES /1 GRILL
1 UGHTED BASKETIlAU. COURT
UGHTED TENNIS COURTS
7. 5 PICNIC TABlES
1 GRILL AND 1 BeNCH
25 UNEAR FeET OF I'lATURETRAlL
AAKING AREA
NO /lOAT RAMP
8. 8 1 UGHTED SENIOR FIELD
1 JUNIOR FIELD
PICNIC TABlES
1 CONaSSION STAND
AAXING AND RESTROOMS
9. 13 1 RfGULATION GYMNASlUMI EXERCISE AND DANCE ROC.tMS/ SHOWERS
2 BASEBAl.I. PRACT1CE FlaDS
1 AQUATIC CENTER
Flees AND CONFERENCE ROC.tM
S AND PAAKING
1 SOCCER FIELD
1 SeT OF PlAYGROUND IPMENT
10. 22 1 SET OF SWINGS AND EQUIPMENT
PICNIC TABlES &; 2 GRIllS
10 BeNCHES
2 UGHTED SOFTBALL FlaDS
1 UGHTED BASKET1!AU. COURT
UGHTED TCNNIS COURTS
1 I'OUEY!IAU. COURT
2 THREE-WALL HANDBAU. COURTS
:nON BUIlDING &; CONCESSION STAND
AND OffICES
11. 23 2 SeT OF SWINGS &. EQUIPMENT
COVEReD PICNIC TABlES
BENCHES AND 2 GRIUS
1 UGHTED FOO'TBAI.l. FIELO
2 CONaSSION STAND AND Ill.EACHERS
UGIfTED IlASEBAU. FlaDS
1 UGHTED BASKET1!AU. COURT
2 COVEReD PAVlUONS
2 UGHTED TENNIS COURTS
AAXING AND RESTROOMS
12. foREST lAKE GOlF CLUB Of' Oeon 60 18 HOlE PROFESSIONAl. GOlF COURSE
ERVES: AU. AGES GROUPS ATaY OPERATEIl PRO SHOP
TEGORY: USfR-ORIfNTED US HOUSE WITH RSSTAURANT
: WEST ORANGE TRAIL FUVING IWlGE AND PUTTING GREEN
AAXING AND RESTROOMS
13. 10 UNDevaOl'ED
14. 10 UNDEVaOPED
15. 40 UNDEVElOPED
TOTAl AcRES 214.2
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 31
CITY OF OCOEE
Based on the Activity Based Recreation Guidelines and the current inventory of recreation
facilities, the City exceeds or meets most of the established guidelines; however, a few
deficiencies exist.
Table 10 identifies current and future recreation facility deficiencies. The. majority of these
deficiencies are not true deficiencies, rather the City's inability to keep pace with the
accelerated growth in the past ten years. Based on the established guidelines, the City is
deficient one soccer field. The Master Plan identifies the need to place additional baseball and
softball fields at the Beech Recreation Center and South Park. The Beech Recreation Center
has plans for a football field and a 1.5 mile hiking trail to connect to the West Orange Trail.
Plans for South Park include a baseball field, play field, hard court, basketball court, soccer
field, and play area. It is anticipated that the existing needs will be corrected within the next ten
years.
TABLE 10
CURRENT RECREATION
FACILITY DEFICIENCIES
ACTIVITY ExIS71NG FAGLITlES: CURRENT THEORETICAL NEED BY ADDmONAL FAGLITlES
SUPPORTED: NEED: 20203 : NEEDED BY 2020:
BASEBAll 2 FIELD 7 FIELDS 5 FIELDS
JUNIOR/SENIOR LEAGUE
BASEBAll 3 FIELD 9 FIELDS 6 FIELDS
Lrm.E LEAGUE
BASKETBAll 4 COURTS 14 COURTS 9 COURTS
BICYCUNG AND WALKING 4 UN EAR MILES 7 MILES 3 MILES
BOATING ETC. 2 RAMPS 5-6 LANES 3-4 RAMPS
FOOTBALL 1 FIELD 2-3 FIELDS 1-2 FIELDS
GOLF 18 HOLES
HORSEBACK RIDING 4 UN EAR MILES 7 MILES 3 MILES
JOGGING/ PHYSICAL 1 EXEROSE/ 1 COURSE
ExEROSE PARCOURSE TRAIL
NATURE STUDY AND HIKING 725 FEET UNPAVED 7 MILES 7 MILES
PICNICKING FAClITIES 8 PARKS WITH 42 14 AREAS 6 AREAS
TABlES & 14 GRILLS
PLAYGROUND EQUIPMENT 10 PLAY AREAS 14 AREAS 4 AREAS
RACQUETBALL AND 2 COURTS 4-5 COURTS 2-3 COURTS
HANDBALL
SHUFFLEBOARD 2 COURTS 6 COURTS 4 COURTS
SOCCER 1 FIELD 4 2 FIELDS 9 FIELDS 8 FIELDS
SOFTBALL FIELD 2 FIELDS 7 FIELDS 5 FIELDS
SWIMMING POOL 8,580 sQ. FT. POOL 1-2 POOLS 1-2 POOL
TENNIS 7 COURTS 14 COURTS 7 COURTS
VOLLEYBALL 2 COURTS 7 COURTS 5 COURTS
3
THE FACILITIES NEEDED BY 2020 INCLUDES CURRENT NEEDS RESULTING FROM PRIOR DEVELOPMENT THAT REMAINS
UN-FUNDED.
THE BEeCH CENTER SOCCER FIELD HAS BEEN INCLUDED SINCE IT IS A PROGRAMMED IMPROVEMENT.
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 32
CI"TY OF OCOEE
TABLE 11
NUMBER OF ACRES NEEDED TO MAINTAIN
THE ADOPTED LEVEL OF SERVICE
YEAR
POPULATION
Ex1511NG LOS
ACRES
LOS ACRESS NEEDED
PROJECTED ACREAGE
BALANCES
2000
2005
2010
2020
24,391 *
46,973-
55,066-
69,941**
214.2
214.2
214.2
214.2
97.56
187.89
220.26
272.80
+116.46
+ 26.13
-6.24
-58.78
'CITY OF OCOEE ONLY /"PROJECTED FUTURE paPULATION REVISED TO REFLECT CHANGES IN 3RD Be 4TH AMENDMENTS TO JPA
Table 11 identifies the numbers of acres of park land and open space the City will need to meet
the adopted level of service standard for the next twenty years. Based on the population
projections, the City will be deficient approximately 60 acres of park and open space land by the
end of the planning period. In addition, the findings in the Neighborhood Service Area Analysis of
the Parks and open Space Master Plan indicate the need for additional recreation facilities. The
majority of the facilities recommended can't be located within the existing parks. For example, 60
acres of the Forest Lakes Golf Course is used for concurrency proposes; however, the City can't
place additional recreation facilities on those 60 acres. Based on the Neighborhood Service Area
Analysis, an additional 25 acres, for a total of 85 acres, is needed to accommodate the additional
recreational facilities needed to meet the needs of future growth.
Table 12 below illustrates the estimated cost to provide the additional parks and recreational
facilities ne~ded by 2020 to accommodate future growth through the planning period. The
estimate includes the facility costs, land costs for additional acreage and proposed Natural Area
Reservations (NAR's), and basic infrastructure costs. The estimated per acre costs for the NAR's
was based on the appraised value of wetlands conducted for the City's recent purchase of the
Coke Property. The basic infrastructure costs include such things as: parking, driveways,
walkways, bike racks, drinking fountains, basic lighting, restrooms, pavilions, landscaping, and
irrigation. The estimate is based on a conceptual cost estimate conducted as part of the Master
Plan for South Park, February 2001. This cost estimate has been slightly modified to more
accurately reflect the costs the City will incur with the development of South Park. The estimated
infrastructure costs will be allocated on a per acre basis for the balance of the City's undeveloped
parks and proposed parks. The estimated cost of improvements to the Ocoee recreation system
is $20,155,000.
CITY OF OCOEE - PARKS 8: OPEN SPACE IMPACT FEE STUDY
PAGE 33
. '~-'):"':"':::('''('
ACTIVITY
,','
"
TABLE 12
ESTIMATED PARKS AND FACILITY COST
ESTIMATED PARK AND FACILITY COST
ADDITIONAL FACILITIES *
NEEDED BY 2020
5 FIELDS (LIGHTED)
6 FIELDS (LIGHTED)
9 COURTS (LIGHTED)
3 MILES
4 RAMPS
2 FIELDS (LIGHTED)
BASEBALL JR/SENIOR LEAGUE
BASEBALL LITTLE LEAGUE
BASKETBALL
BICYCLING AND WALKING
BOATING ETC.
FOOTBALL
GOLF
HORSEBACK RIDING
JOGGING/PHYSICAL EXERCISE
NATURE STUDY AND HIKING
PICNICING FACILITIES
PLA. YGROUND EQUIPMENT
RACQUETBALL AND HANDBALL
SHUFFLEBOARD
SOCCER
SOFTBALL FIELD
SWIMMING POOL
TENNIS
VOLLEYBALL
PROJECTED F ACIUTY COST:
PROJECTED ADD'L LAND NEEDS:
PROJECTED TYPICAL BASIC
INFRASTURCTURE COSTS:
NATURAL AREA RESERVATIONS:
TOTAL PROJECTED COSTS"
3 MILES
PER UNIT COST ESTIMATED COSTu
125.000 625.000
1 25.000 750.000
20.0QO 180.000
250.000 750,000
50.000 200,000
250.000 500.000
- -
70,000 210,000
- .
70.000 490.000
10.000 60.000
50.000 200,000
50.000 150.000
10.000 40,000
200,000 1 .600.000
200.000 1.000,000
1 .500,000 3.000,000
50,000 350,000
15.000 75.000
$10. 180.000
75.000 6.375.000
40.000 1 .400.000
1 1 ,000 2.200,000
$20. 1 55.000
7 MILES
6 AREAS
4 AREAS
3 COURTS (LIGHTED)
4 COURTS (LIGHTED)
8 FIELDS (LIGHTED)
5 FIELDS (LIGHTED)
2 POOLS
7 COURTS (UGHTED)
5 COURTS (LIGHTED)
85 ACRES
35 ACRES
200 ACRES
*ESTIMATED COST IS BASED ON THE LOWER RANGE OF ADDITIONAL FACILITIES NEEDED
uESTIMATED COSTS ARE BASED ON YEAR 2004 DOLLARS
***ESTIMATED COSTS DO NOT TAKE INTO ACCT THE INCREASED COST THAT MAY OCCUR OVER THE NEXT 20 YRS
NOTE: THE CITY COMMISSION MAY CONSIDER BUILDING EXTRA FACILITIES, BASED ON THE RECOMMENDATIONS
OF THE PARKS & RECREATION ADVISORY BOARD. THE CITY WOULD NOT USE REVENUE GENERATED BY
THE PARKS AND OPEN SPACE IMPACT FEES TO PROVIDE THESE FACILITIES, BUT WOULD INSTEAD
PURSUE ALTERNATIVE FUNDING SOURCES FOR THESE FACILITIES.
34
CrN OF OCOEE
5.5 RECREATION IMPACT FEE DETERMINATION
Having gathered, analyzed, and projected all ofthe foregoing infonnation, it is possible to
detennine the theoretical proportionate share impact fee rates using the methodology
outlined below.
1997 JPA Population: 35,105 (based on the 1997 JPA)
Year 2020 JPA Population: 68,200 (based on the 3rd & 4th Amendments to the JPA)
New Population Growth: 33,095
Value of Capital Items Needed: $20,155,000
Number of Residential Dwelling Units to be added in the JPA: 12,288 DU
(based on the 3rd & 4th Amendments to the JPA)
Capital Investment Need per Dwelling Unit: $1,640.00
This City will continue to seek ways to off-set the increasing costs of providing parks and
open space land and facilities for City residents. Following are a few ways cities typically
off.set the cost of land and facilities.
GRANTS
Various types of grants are available to cities which are exclusively dedicated towards the
acquisition of land and the construction of recreational facilities. The City has historically
been ~warded grants from various agencies.
JOINT USE FACIUTIES
The City has partnered with Orange County Public Schools to provide joint use park and
school recreation facilities at the Citrus Elementary and South Park. The City plans to
continuing to work with the School Board to provide additional joint use facilities in the future.
DEVELOPER CONTRIBUTIONS
Developer contributions are another source cities use to off.set the costs to residents.
Developer contributions typically come in the fonn of land. The dedicated land creates an
amenity for the new development as well as for the community.
For the purpose of this cost analysis, it was assumed that the City would continue to
aggressively seek grants, partnerships, and developer contributions for the future
construction of recreational facilities.
CliY OF OCOEE - PARKS 8c OPEN SPACE IMPACT FEE STUDY
PAGE 35
CITY OF OCOEE
SECTION SIX: CONCLUSIONS
This study of the Ocoee Recreation Department's future needs has demonstrated that
significant additional capital investment will be necessary to maintain the current Level of
Service standard for the community. The determination of the proportionate 'share of these
costs attributable to new growth has been undertaken using accepted methOdology geared
to the unique circumstances of Ocoee. The final recommended fee rate is believed to be
equitable and legally defensible under the "rational nexus" test as well as under other
generally accepted legal criteria.
It has been demonstrated that the City of Ocoee has enough Parks and Open Space
capacity available to accommodate the immediate needs of the City. Additional land and
recreation facilities are required to keep pace with the accelerated growth and meet the
needs of future development, and that new growth will, at a minimum, proportionately add to
community service requirements. These requirements correspondingly must be supported
by large-scale capital expenditures. It has been shown that the collection and use to these
funds will reasonably benefrt the contributors by providing comparable service at levels
currently enjoyed by existing users. Additionally, the recommended fee was ultimately set to
ensure that no windfall of revenue derived from the fee would benefit existing users or make
up any prior system deficiencies.
The Ordinance, which is drafted to implement Parks and Open Space Impact Fee, should be
structured in accordance with all generally accepted legal criteria. It should also specifically
highlight the assumptions, approaches, and findings included within this study to support its
enactment. Adequate public involvement and hearings prior to adoption of the Ordinance
are necessary to ensure that all parties have had the opportunity to respond to the proposed
regulations. Staff recommends that the Ordinance be amended to adjust the impact fee and
abolish. th_e _section-based impact fee structure, and instead adopt a City-wide impact fee per
dwelling unit.
The following recommended impact fee rate for the Parks and Open Space Ordinance is
based upon the best available information and careful analysis of the Ocoee Parks and
Open Space Master Plan. It represents what is believed to be the most fair and equitable
fee which may be charged by the City of Ocoee to aid in providing needed capital facilities
and equipment required by new growth through the year 2020.
RECOMMENDED RECREATION AND OPEN SPACE IMPACT FEE RATE
Fee per residential dwelling unit: $1,640.00
This recommended rate is a conservative estimate of the City's future Parks and Open Space
capital needs. Based on the methodology used for the determination of the fee and the
estimated costs of the recreation facilities assumed for the purpose of this calculation, it
appears that the proposed impact fee is reasonable. A survey of local recreation impact fees
demonstrated that Ocoee's current Parks and Open Space Impact Fee is the lowest in the tri-
county area while the recommended rate is similar to that of other communities. Based on
the projected number of dwelling units to be added to the City, the proposed recreation
impact fee will generate approximately 20,155 million dollars through the planning period.
The City should continue to aggressively seek grants, joint use partnerships and developer
contributions to offset the future escalating costs of improvements to the Ocoee Parks and
Open Space system.
CITY OF OCOEE - PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 36
CITY OF OCOEE
BIBLIOGRAPHY
1. City of Ocoee Comprehensive Plan, City of Ocoee, Florida, 1991.
2 The Calculation of Proportionate-Share Impact Fees, James C Nicholas, American
Planning Association, Chicago, Illinois, 1988.
3 Development Impact Fees, Arthur C. Nelson, Planners Press, American Planning
Association, Chicago, Illinois, 1988.
4. General Population Estimates, U.S. Department of Commerce - Bureau of the Census,
1990.
5. City of Ocoee Recreation and Open Space Impact Fee Study, Ocoee Planning
Department, 1990/Updated 1991.
6. 1991 Florida ACIR Impact Fee Survey, Florida Advisory Council on Intergovernmental
Relations, Draft Report, 1991.
7. Projections of Florida Population by County, Bureau of Economic and Business
Research, College of Business Administration, University of Florida,1991.
8. Draft Parks and Open Space Master Plan, City of Ocoee, May 2001.
9. Outdoor Recreation, 1994, State of Florida Department of Environmental Protection
10. Winter Garden Police and Fire Impact Fee Study, 1992, Dyer, Riddle, Mills, Precourt.
11. Ocoee Master Transportation Plan, 1998, City of Ocoee
o:\kmcginnis\all_data\amendmnt\parks & recreation\impact fee study\new impact fee 723.doc
CITY OF OCOEE- PARKS & OPEN SPACE IMPACT FEE STUDY
PAGE 37
CITY OF OCOEE
RECREATION/PARKS IMPACT FEE COMPARISON
Local Government Recreation Remarks:
Ocoee.Existing $500 per Residential Dwelling
None for Non-Residential
Ocoee.Proposed $1,640 per Residential Dwelling
None for Non-Residential
Parks & Recreation impact fee: City Library impact fee
of $90.74 included within the totai fee.
Housing Type Fee per
Altamonte Springs dwellino unit
Sinale Family $302.09
Multi-Family $259.15
Tvpe Per unit
Apopka All Residential $241.05
Hotel/Motel $50
Library ($54 per residential unit)
Casselberry $390 per residential unit
Kissimmee Residential: $300/du
Additional impact fees:
Library: $54/Residential unit
Development Type Fee School impact fee imposed by the County
Lake Mary Residential $335/unit
Commercial/Non- $0.031/sq.
Residential ft.
Residential land uses are also charged $820.51 impact
Land Use Fee Cost fee for the Public Library
Residential $300 .39/d u
Mt. Dora Non-Residential Per 1000 so. ft.
Commercial $999.51
Institutional $913.06
Industrial $44.38
Orlando None
H:\DEVELOPMENT REVIEWS\lmpact Fees\lmpact Fee Study-11-2004\lmpact Fee Comparisons\lmpact Fee Comparison_Recreational Parks_10-
2004.doc
Page 1 of 2
CITY OF OCOEE
RECREATION/PARKS IMPACT FEE COMPARISON
Local Government Recreation Remarks:
Oviedo $1,201 per dwelling unit
Public Building Impact Fee:
I Tvoe Rate Residential ($100) and Commercial ($321.35/1000 sq.
Winter I Residential $928.66/unit ft.)
Springs I Commercial none
Housing Type Fee per
dwelling
unit
Singie Family $671
Winter Garden
Multi-Family $598.
Mobile Home $451.
Orange County None
Osceola County None
Library System Impact Fee:
Seminole County None $54 per residential dwelling unit
St. Cloud $220 per dwelling unit
Sanford $279.61 per dwelling unit
Oakland $350 per dwelling unit
Winter Park $2,000 per dwelling unit
H:\DEVELOPMENT REVIEWS\lmpact Fees\lmpact Fee Study_11-2004\1mpact Fee Comparisons\lmpact Fee Comparison_Recreational Parks_10-
2004.doc
Page 2 of 2
"
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CITY OF OCOEE
PARKS AND RECREATION
'\ --r-' Trr[r"rert/?--r':-\Pr- CT ~rr r'
tP-.ll>>dJ b}[G; ~ 1 v~.J.Gb~~ ;_
THE IMPACT FEE WAS BASED ON PARKS AND RECREATION NEEDS VALUED
AT $6,884,633.96.
E CITY'S THREE RECREATIONAL PARK IMPACT FEES AREAS WERE
OLISHED.
ERE IS NO LONGER A SEPARATE FEE FOR COMMUNITY PARKS AND
iIGHBORHOOD PARKS.
I~E RECREATIONAL PARK IMPACT FEE OF $500 IS ASSESSED PER
SIDENTIAL DWELLING UNIT (SINGLE FAMILY, MULTI-FAMILY, AND MOBILE
MES.
I
ON
2 1 r 'Cl
ORDINA'NCE:
I.. . .t :~J.~~yi~~',.,._,; ':.,.:~ '," _,," ., _"'.,4
(ORD'fNANC~'9'O~'1
sy'to INc:l:UDE TH.~ po'L2ovJiRiG':
THE
ESTIrJ1~
ilOOi
tS]MA lED ~ARK AND rACllIlY casr
-
A CTWflY ADDITIONAL FACILITIES *
NEEDED BY 2020
-
BASEBALLJR/SENIOR LEAGUE 5 FIELDS (LIGHTED)
BASEBALL UTILE LEAGUE 6 FIELDS (LIGHTED)
BASKETBALL 9 COURTS (LIGHTED)
PER UNIT COSTI ESTIMATED Cosr**
25,000 625,000
25,000 750,000
20,000 80,000
ESTIMATED PARK AND fACIliTY COST
ACTIVITY ADDITIONAL FACILITIES * PER UNIT COST ESTIMATED COST**
NEEDED BY 2020
BICYCLING AND WALKING 3 MILES 250,000 750,000
BOATING ETC, 4 RAMPS 50,000 200,000
FOOTBALL 2 FIELDS (LIGHTED) 250,000 500,000
GOLF . . .
I..
'"
1~;,,:.;
-
ESTIMATED PARK AND fACIliTY COST
-
A CTNnY ADDITIONAL FACILITIES *
- - . . _...
NEEDED BY 2020
-
HORSEBACK RIDING 3 MILES
JOGGING/PHYSICAL EXERCISE ·
NATURE STUDY AND HIKING 7 MILES
PER UNIT COST ESTIMATED COST**
-... - ...... =- . . -
70,000 210,000
. .
70.000 490,000
<<
t~TIMA~~ ~AR~A~~ rACllIlY co~r
ACTNITY ADDITIONAL F ACIUTIES * PER UNIT COST ESTIMATED COST**
NEEDED BY LOLO
PICNICING FACILITIES o AREAS 10,000 00,000
PlAYGROUND EQUIPMENT 4 AREAS 00,000 LOO,OOO
RACQUETBALL AND HANDBALL J COURTS (LIGHTED) 00,000 100,000
ESTIMA TED PARK AND rACllITY COST
ACTIVITY ADDITIONAL FACILITIES * PER UNIT COST ESTIMATED COST**
NEEDED BY 2020
SHUFFLEBOARD 4 COURTS (LIGHTED) 10,000 40,000
SOCCER 8 FIELDS (LIGHTED) 200,000 1,600,000
SOFTBALL FIELD 5 FIELDS (LIGHTED) 200,000 1,000,000
ESTIMA TED PARK AND FACIliTY COST
ACTIVITY ADDITIONAL FACILITIES * PER UNIT COST ESTIMATED COST**
NEEDED BY 2020
SWIMMING POOL 2 POOLS 1,500,000 3,000,000
TENNIS 7 COURTS (LIGHTED) 50,000 350,000
VOLLEYBALL 5 COURTS (LIGHTED) 15,000 75,000
PROJECTED FACILITY COST: $10,180,000
~
~t
" ,:~' f~~ ,~::$~ ~ 1(" {
- - - - ---- - "".,. - ~
,."' -
NFRASTURCTURE COSTS: 40,000 1,400,000
- ~- ~ -
NATURAL AREA RESERVATIONS: 200 ACRES 11,000 2,200,000
TOTAL PROJECTED COSTS" $ 20,155,000.00
-
*ESTIMATED COST IS BASED ON THE LOWER RANGE OF ADDITIONAL FACILITIES NEEDED
**ESTIMATED COSTS ARE BASED ON YEAR 2004 DOLLARS
***ESTIMATED COSTS DO NOT TAKE INTO ACCTTHE INCREASED COST THAT MAY OCCUR OVER THE NEXT 20YRS
NOTE THE CITY COMMISSION MAY CONSIDER BUILDING EXTRA FACILITIES, BASED ON THE RECOMMENDATIONS
OF THE PARKS & RECREATION ADVISORY BOARD. THE CITY WOULD NOT USE REVENUE GENERATED BY
THE PARKS AND OPEN SPACE IMPACT FEES TO PROVIDE THESE FACILITIES. BUT WOULD INSTEAD
PURSUE ALTERNATIVE FUNDING SOURCES FOR THESE FACILITIES.
- - -
*RECENTL Y CHANGED FOR THIS FISCAL YEAR
.
.
.
.
.
.
.
.
.
.
.
.
WINTER SPRINGS
OVIEDO
WINTER PARK
LAKE MARY
OAKLAND
CASSELBERRY
OCOEE
KISSIMMEE
WINTER GARDEN
ST. CLOUD
ApOPKA
SANFORD
-
;i,i.;' ~ ,f!'
. t >!- 'd'~ ~
220.00 PE~ DWE,LLING UNIT
241 .05 PER DWELLING UNIT
279.61 PER DWELLING UNIT*
300.00 PER DWELLING UNIT
320.00 PER DWELLING UNIT
335.00 PER DWELLING UNIT
350.00 PER DWELLING UNIT
390.00 PER DWELLING UNIT
500.00 (PRESENT) 1 ,640.00 (PROPOSED)
928.66 PER DWELLING UNIT*
1 ,201 PER DWELLING UNIT
2,000 PER DWELLING UNIT
I
F~THIS AM<JUN'L IS, DIVID.ED. BYTH.6 C:S;rrMATED;
0llI". ~~ .,-.... ,-' ,_,W!! .,~ .'< :;J '-'-'" ,.. . ,', ;,'11'''''''''' d:d "-~ > .of: ~ :.'Il
NU.MBER OW NEW RESIDENTIAL D.tWELLINGS
:}> .. .,'" ..' .. ",,' . "':.'..... ,c"'" .<<.'" ..... ....." ..
(1 2,2882 WHICH I~~ I?ROJECiEQ. BY 2Q,2Q" THE;N
THE IMPAC.T FEE SHOULD BE ADJl)STEO TO
$1 640. ($1 637)
iIIiiii
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!I 1.11 'IIJ })!f . =.I ~);~!J !l..-lJ:.IY !. ~ ,"u., ':}-.!) 'i:!J ~~!9!1!l=a =.I d)..::.l ~ !j i:!J
^ D D O'tr\,YiIIM; IX l:"J=;Eit..V/ ~~if\ "'"' (j\ f?\ Ij\fA
J?.1" ~~~Y9~:;,:I fJ~.~ ~-ii I; ~~.. \dI'J Y\d/\.d)~ yy'\..d)~
ORDINANCE NO.
AN ORDINANCE OF THE CITY OF OCOEE, FLORIDA
RELATING TO RECREATIONAL PARK IMPACT FEES;
AMENDING SECTION 87-18 OF ARTICLE II OF
CHAPTER 87 OF THE CODE OF ORDINANCES OF THE
CITY OF OCOEE RELATING TO RECREATIONAL PARK
IMPACT FEES; INCREASING THE RECREATIONAL
PARK IMPACT FEE PER RESIDENTIAL DWELLING
UNIT; PROVIDING FOR SEVERABILITY; PROVIDING
FOR CODIFICATION; PROVIDING AN EFFECTIVE
DATE.
WHEREAS, the City Commission of the City of Ocoee has the authority to adopt this
Ordinance pursuant to Article VIII of the Constitution of the State of Florida and Chapter 166,
Florida Statutes; and
WHEREAS, the City Commission of the City of Ocoee desires to increase the
recreational park impact fee per residential dwelling unit, provided, however, that the existing
fees shall apply to any new buildings for which a building permit application has been submitted
to the City on or prior to the effective date of this Ordinance and for which a building permit is
issued within ninety (90) days from the date of adoption of this Ordinance; and
WHEREAS, the City conducted an update to that certain Parks & Open Space Impact
Fee Study, dated September 2001, and according to this update has made a determination as to
the necessary uniform recreational park impact fee for new dwelling units within the City.
NOW, THEREFORE, BE IT ENACTED BY THE CITY COMMISSION OF THE
CITY OF OCOEE, FLORIDA, AS FOLLOWS:
006.330540.3
SECTION 1. Authority. The City Commission of Ocoee has the authority to adopt this
Ordinance pursuant to Article VIII of the Constitution of the State of Florida and Chapter 166,
Florida Statutes.
SECTION 2. Amendment to Section 87-18 Section 87-18 of Article II of Chapter 87 of
the Code of Ordinances of the City of Ocoee, Florida, is hereby amended to read as follows (with
deletions stricken and additions underlined):
~87-18 Assessment of Fees.
A recreational park impact fee in the amount of $500.00 $1640.00 per residential
dwelling unit is hereby assessed by the city and shall be collected by the city prior
to issuance of a building permit or any other development permit for the
construction of any structure to be used for a dwelling unit. This fee is based on the
City of Ocoee - Parks & Open Space Impact Fee Study dated September, 2001. as
undated bv that certain City of Ocoee - Parks & Onen Snace Imnact Fee Study
nublished Ami!. 2004.
SECTION 3. Severability, If any section, subsection, sentence, clause, phrase or portion
of this Ordinance is for any reason held invalid or unconstitutional by any court of competent
jurisdiction, such portion shall be deemed a separate, distinct and independent provision and such
holding shall not affect the validity of the remaining portion hereto.
SECTION 4. Codification. It is the intention of the City Commission ofthe City that the
provisions of this Ordinance shall become and be made a part of the Code of Ordinances of the
City; and that sections of this Ordinance may be renumbered or relettered and the word
"ordinance" may be changed to "chapter," "section," "article," or such other appropriate word or
phrase in order to accomplish such intentions; and regardless of whether such inclusion in the
Code is accomplished, sections of this Ordinance may be renumbered or relettered and the
correction of typographical errors which do not affect the intent may be authorized by the City
006.330540.3
-2-
Manager, without need of public hearing, by filing a corrected or recodified copy of same with the
City Clerk.
SECTION 5. Effective Date. This Ordinance shall become effective immediately upon
passage and adoption, provided, however, that the existing fees shall apply to any new buildings
for which a building permit application has been submitted to the City on or prior to the effective
date of this Ordinance and for which a building permit is issued within ninety (90) days from the
date of adoption of this Ordinance.
PASSED AND ADOPTED this _ day of
,2005.
ATTEST:
APPROVED:
CITY OF OCOEE, FLORIDA
Beth Eikenberry, City Clerk
(SEAL)
S. Scott Vandergrift, Mayor
FOR USE AND RELIANCE ONLY BY
THE CITY OF OCOEE, FLORIDA;
APPROVED AS TO FORM AND
LEGALITY this _ day of ,2005.
ADVERTISED
, 2005 AND
, 2005
READ FIRST TIME ,2005
READ SECOND TIME AND ADOPTED
, 2005
UNDER AGENDA ITEM NO.
FOLEY & LARDNER LLP
By:
City Attorney
006.330540.3
-3-