Staff Presentation 4 Planning Issues for West Orange County STAFF
PRESE\TATION
4 .
"CENTER OF GOOD LIVING- PRIDE OF WEST ORANGE" MAYOR• COMMISSIONER
Ocoee S.SCOTT VANDERGRIFT
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��,, COMMISSIONERS
�j� • a' CITY OF OCOEE USTY JOHNSON
SCOTT ANDERSON
• OI 150 N. LAKESHORE DRIVE SCOTT A.GLASS
)3) OCOEE,FLORIDA 34761-2258 JIM CLEASON
• (407)656-2322
CITY MANAGER
4 4f 000° ELLIS SHAPIRO
MEMORANDUM
DATE: May 17, 1996
TO: Ellis Shapiro, City Manager
FROM: Russ Wagner, AICP, Director of Planning
SUBJECT: Apopka, Ocoee, and Winter Garden Forum - Planning Issues
COMPREHENSIVE PLANNING
1. Sprawling patterns of development in Orange County create an inefficient system for delivery of urban
services.
▪ Inefficient delivery of services has created financial difficulties for Orange County. This has
led to "turf-wars'' with Orange County and them seeking to limit growth within the
municipalities.
a By definition, cities have to be contiguous and compact, thereby ensuring logical development
patterns and efficient delivery of services.
■ Orange County has established an urban service area which theoretically allocates services
efficiently and restricts development within the Rural Service Area. This area is so large that
compact patterns of development are difficult to maintain.
2. Due to the antiquated annexation criteria of the State, local municipalities have had a difficult time
planning for land use, transportation, and utilities and have, therefore, attempted to enter into Joint
Planning Area or Reserve Planning Area Agreements with Orange County.
■ Winter Garden has a Reserve Planning Area Agreement with Orange County. Apopka is
negotiating a Joint Planning Area Agreement and Ocoee adopted a Joint Planning Area
Agreement with Orange County in 1994.
■ These planning areas give only limited authority to the cities and do not promote the level of
intergovernmental coordination that is .necessary to effectively plan for these areas,
particularly when Orange County chooses to encourage urban development within these
areas under its jurisdiction.
■ Despite negotiating a Joint Planning Area Agreement with Ocoee, Orange County still filed
a lawsuit to prevent large areas from being annexed out of Orange County and into Ocoee.
3. Orange County has initiated its own large scale "new town" developments such as Horizon West and
the Northwest Study Area near Apopka.
May 17, 1996
Ellis Shapiro, City Manager
Page 2
4. Back in 1991, the Cities of Apopka, Ocoee, Windermere, Winter Garden, and Orlando sought to
create a Joint Planning/Reserve Area Agreement between the cities known as the Cooperative
Agency of Municipal Planning (CAMP Agreement). This agreement would have done the following:
• = Establish a multiple jurisdictional planning agency.
• Identify logical annexation areas and reserve areas for participating cities.
• Require notice to adjacent jurisdictions of new developments within one half mile.
• Provide a simple framework that allowed easy separation from the CAMP.
• Agreement was never implemented or adopted by Orange County.
• It is unlikely that such an agreement could be resurrected now without significant negotiation
since State planning laws require that Orange County divest itself of any planning authority
over unincorporated lands located within a Joint Planning Area.
INTERGOVERNMENTAL COORDINATION
1. There have been several recent cooperative projects undertaken by Orange County with local
municipalities.
• The South Apopka Community Redevelopment Area was a joint effort of Orange County and
the City of Apopka to revitalize a declining neighborhood in south Apopka and address code -
enforcement issues, crime and safety, education, housing, and public works issues, etc.
• Orange County and Winter Garden jointly developed the Winter Garden Community Action
Plan seeking to revitalize declining neighborhoods in Winter Garden to address similar issues.
• The Orange County Parks Department has been actively participating and working with local
municipalities in the development of the West Orange Trail, West Orange Park, and the
Crown Point Park.
• Orange County has also been actively involved in promoting the construction of the Western
Beltway.
• In the past, Orange County has worked-with the cities of Apopka and Winter Garden to
develop fire service area agreements, as well as utility'service area agreements with the City
of Ocoee.
2. There is an opportunity for the City of Ocoee and the City of Winter Garden to coordinate effluent
disposal to resolve wet weather disposal problems.
May 17, 1996
Ellis Shapiro, City Manager
Page 3
3. Cooperation has been lacking with Orange County in many other instances.
• The County is responsible for the maintenance of State and County Roads within the
municipalities; however, the municipalities have higher standards for these roads and are
often delegated this responsibility by the County so that these standards can be met.
• The County has pursued the Northwest Study Area near Apopka and Horizons West near
Ocoee and Winter Garden with little regard for its possible adverse impacts upcn neighboring
municipalities.
• The Teacup Springs development near the City of Winter Garden was developed with little
Orange County coordination resulting in significant adverse impacts to the City. -•
• The Spring Hollow development near the City of Apopka was developed with little Orange
County coordination resulting in significant adverse impacts to the City.
• The County attempted to pass a Comprehensive Plan Amendment to allow development of
Beimere near Ocoee and Winter Garden. The proposal not only impacts local transportation
networks and public facilities but would allow the County to establish urban densities in
virtually any part of Rural Service Area. The cities cooperatively fought the County on this
proposal, and it appears that DCA is supporting the municipalities position. This case has
prompted Orange County to initiate meetings to discuss this case and other possible areas
of cooperation.
• The Orange County BZA recently approved a Special Exception for a mini-warehouse project .
across from the new Health Central Hospital in Ocoee. The Board of County Commissioners •
reversed the decision of the Board of Zoning Adjustment and supported the concerns of the
City and adjacent property owners after having significant pressure applied to Orange County.
• The County has recently indicated that certain drainage problems are the result of City of
Ocoee actions and are not the County's responsibility. Ocoee examples include the Center
Street area and the Sawmill Subdivision.
• The Winter Garden Citrus Cooperative development, located in unincorporated Orange
County, has been creating drainage problems for Winter Garden for years. The City of Winter
Garden has attempted to coordinate with Orange County to resolve mutual drainage problems
in the Temple Grove Drive and Lulu Creek areas.
• The City has been attempting unsuccessfully for months to get an agreement with the County .
to provide a simple water service interconnect to the West Oaks Mall for insurance purposes.
This lack of cooperation could delay the opening of the Mall and result in a sufficient tax loss
to both the City and County.
• As development continues to the south of Winter Garden, the City of Winter Garden may also
need to execute a water service interconnect agreement with Orange County.
May 17, 1996
Ellis Shapiro, City Manager
Page 4 •
ORANGE COUNTY SCHOOL BOARD
1. There has been virtually no coordination or communication from the School Board with regard to
school facilities planning in the area.
• Ocoee has asked for numerous meetings and has sent letters to the School Board, which
have been ignored.
• The City of Winter Garden also feels that they have had no input in the school planning
process.
• The School Board has exhibited poor planning with the location of many school facilities in
the area such as the Middle School located on Apopka-Vineland Road, north of Silver Star.
This school has caused numerous transportation problems.
• The School Board has lacked the foresight needed to forecast where schools will grow
because of a lack of coordination with local governments.
• The School Board has overextended itself partially due to the sprawl development patterns
in Orange County, which makes forecasting difficult.
▪ The County has had to rely on extensive busing to accomplish its schooling programs.
▪ Even Orange County has been frustrated with the School Board in develcping appropriate
facilities.
TRANSPORTATION
1. There has been a general lack of County investment in the West Orange transportation system
network.
• The local municipalities have been assuming increasing responsibility for the
construction and improvement of County roads in West Orange County.
• Orange County has failed to address many basic transportation needs of the area, i.e.
• State Road 50/West Colonial Drive widening/signalization
• East-west relief from State Road 50 between Windermere Road and S.R. 545
• Daniels Road/State Road-535 realignment/straightening
• Old Winter Garden Road intersection at Hemple Road
• Old Winter Garden Road intersection at Good Homes Road
• Ocoee-Apopka Road intersection at Fullers Cross Road
• Good Homes Road intersection at White Road
May 17, 1996
Ellis Shapiro, City Manager
Page 5
2. Ocoee has initiated area-wide transport planning to encourage cooperation with FOOT, the
Expressway Authority, and Orange County.
▪ These meetings have determined that there is some interest in jointly funding projects
but these meetings are in their preliminary stages.
• There is a general need to increase the MPO's awareness of the need for
transportation improvements in West Orange County.
• As an example, the Metropolitan Planning Organization (MPO) does not even have
the West Oaks Mall in their transportation model. The projected land use for the 2020.
Plan does not nearly approach the level of growth that will occur.
3. There are many opportunities for cooperation between Ocoee, Apopka, Winter Garden, and Orange
County in local transportation network planning including:
• Western Beltway Frontage Roads
• Roberson Road Extension West (connection to Hartwood Marsh Road)
• Apopka Bypass
• Wurst Road Extension
• Clarke Road Extension
e Clarcona-Ocoee Road
■ Ocoee-Apopka Road/ State Road 438
■ Apopka-Vineland Road
■ State Road 50
• Silver Star Road/ Franklin
■ State Road 535/ Daniels Road
4. There are significant differences in the way the County and the cities handle concurrency. This
difference in the Level of Service needs to be resolved to create a level playing field. At the present
time, the cities are at a disadvantage because the County system is more lenient.
e Orange County uses P.M. Peak Hour Trip Counts
e Orange County has adopted the FOOT Level of Service on State Roads
■ Orange County accepts Alternative Traffic Studies using Parallel Roads
■ Orange County just adopted a new CMS identifying Parallel Roads/Alternative Routes
and approving a pay-as-you-go system
5. In general, there will need to be a significant increase in State and County investment in the local
transport area network if the area is expected to grow at the current rate of development.
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Property Limits County North
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BELMERE PLANNED DE IELOPIIEYT .._...
SEC.'Tw'N/RVG: 6/23123 & 31122.'23 .2 t ,+ '7- ° I•-•
DISTRICT: =1 1 '
LOCATION: SOUTH SIDE OF ROBERSON ROAD, _
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