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STAFF REPORT
TO: THE HONORABLE MAYOR AND CITY COMMISSION
FROM: JANET G. RESNIK, CAPITAL PROJECTS/CONCURRENCY ANALYST
THROUGH: RUSSELL B. WAGNER, AICP, DIRECTOR OF PLANNING j
DATE: FEBRUARY 27, 1997
SUBJECT: ADOPTION OF COMPREHENSIVE PLAN AMENDMENTS
ORDINANCE NO. 97-09
CPA 97-1-1, 97-1-2, AND 97-1-3
ISSUE:
Should the Honorable Mayor and City Commission approve Ordinance 97-09 , adopting the above
Comprehensive Plan Amendments?
BACKGROUND:
On November 19, 1996, the City Commission approved proposed amendments to the
Comprehensive Plan and directed staff to transmit the amendment package to the Department of
Community Affairs (DCA). The package included amendments to the Future Land Use Element,
Future Land Use Map (Figure 2), Activity Centers General Location Map (Figure 14), and Traffic
Circulation Element.
On February 10, 1997, the City received an Objections, Recommendations, and Comments (ORC)
Report from DCA outlining eleven (11) objections to the proposed amendments.
DISCUSSION:
City staff has prepared a formal response to the ORC Report (Attached) and updated the formal
Comprehensive Plan Amendments for further consideration (Exhibit A of Ordinance 97-09). The
following provides a brief summary of the Comprehensive Plan Amendments, DCA's objections,
and City staffs recommendations on addressing the State's concerns:
et
1 S
City Commission Staff Report
February 27, 1997
Page Two
CPA 97-1-1:
This amendment to the Traffic Circulation Element was originally intended to incorporate all of the
Florida Department of Transportation (FDOT) approved methods for monitoring and assessing
traffic conditions, and to change the Levels of Service (LOS) for all state and county roads from
LOS D to LOS E.
DCA's primary objections were that(1)the basis for assigning LOS should be by a road's functional
classification, not ownership, and (2) that the proposed amendment deviated from the mandatory
LOS standards for roads included in the Florida Intrastate Highway System (FINS).
In response to these concerns, City staff has changed the amendment. The Plan's original
roadway functional classification definitions have been replaced by definitions from the U.S.
Department of Transportation's Highway Functional Classification Manual . The amendment also
adopts the Federal Functional Classifications for the individual roads the City monitors (Figure 2
in the Future Land Use Element), and the levels of service for these roads are now consistent with
Orange County and the City of Winter Garden. All these changes to the Traffic Circulation
Element are to make the City's Comprehensive Plan consistent with state-approved standards and
consistent with other local governments. The end result is that State Road 50 as a principal
arterial will remain with a LOS D. Silver Star Road, and all other state and county facilities that are
either minor arterials or collectors, will now have a LOS E. The Florida Turnpike and the East-West
Expressway, which are classified as principal arterials but carry mandatory FDOT LOS standards
because they are FIHS facilities, will have a LOS C and LOS D, respectively. All City-maintained
roads will remain at LOS D. Based upon telephone conversation with DCA staff, these additional
changes should resolve their concerns.
CPA 97-1-2:
This amendment basically deals with Activity Centers, and more specifically with the addition of the
Blackwood Avenue/SR. 50 Activity Center. It adds this Activity Center to both the Future Land
Use Map and the Activity Centers General Locations Map. The text of the Future Land Use
Element was amended to include the Blackwood Ave./S.R. 50 Activity Center as well as to clarify
how boundaries are set for these areas and how the special overlay plans will be prepared.
DCA objected to providing only a general description of boundaries for Activity Centers, rather than
specific boundaries for each Activity Center. DCA staff requested data and analysis to show the
cumulative impacts of Activity Centers on facilities and services and stated that the City should
establish specifics for each Activity Center on the maximum amount of each land use type to be
included, densities and intensities to be allowed, how development codes may be waived, and
under what conditions.
City staff believes most of the DCA objections are moot because the original Comprehensive Plan,
which has been found to be in compliance by DCA, already includes four(4)Activity Centers which
do not have definitive boundary lines specified anywhere in the Comprehensive Plan. The map
outlining these centers (Figure 14), is termed "Activity Centers General Locations Map". City staff
City Commission Staff Report
February 27, 1997
Page Three
is not proposing any new land use changes and therefore, does not believe new data and analysis
is necessary. In 1991 when the original Plan was adopted, the Blackwood Ave./S.R. 50
intersection was designated as a "future" activity center. With the master planning currently being
done by Health Central and other development occurring in this area, City staff felt that now was
an appropriate time to concentrate on planning in this area. The Activity Center designation is a
first step in that direction.
The additional language referring to the general boundaries of Activity Centers as being within
"one-quarter mile radius of the Activity Center's main intersection or any parts of any subdivisions
or parcels within the one-quarter mile radius as well as any logical extensions beyond those
boundaries"was meant to clarify existing text which defines an Activity Center as the "impact zone
of a major intersection". Subsequent changes were also made to the text to change the term
"Special Strategy Areas"to"Special Overlay Areas"to better clarify its intent, and the names of the
three types of Special Overlay Areas were also clarified throughout the FLUE. After discussing the
proposed text amendments in detail with DCA staff and offering to amplify on some of their
concerns in the ORC response, this amendment should be found to be in compliance.
CPA 97-1-3:
This amendment updates the Future Land Use Map to include several recent annexations and one
small scale amendment. DCA had no objections to this amendment and it remains as previously
approved by the City Commission.
RECOMMENDATION:
Staff respectfully recommends that the Mayor and City Commission: (1) approve Ordinance No.
97-09 which ADOPTS the Comprehensive Plan Amendments upon finding said Amendments to
be consistent with the Ocoee Comprehensive Plan and the requirements of the JPA Agreement,
(2) authorize execution of Ordinance No. 97-09 by the Mayor and City Clerk, and (3) designate the
Director of Planning as the person to transmit a letter to DCA outlining all required information as
specified by Florida Statues for the adoption of a Comprehensive Plan Amendment.
(Please note that this Ordinance becomes effective on a date subsequent to its adoption based
upon receipt of Notice of Compliance by DCA).
RBW/JOR/csa
Attachments: (1) ORC Response
(2) Ordinance No. 97-09 w/Exhibit A
(3) Orlando Sentinel Advertisement, February 27, 1997
C:\CAPDFILE\STAFFR-1\CCSR-1\sRP97011.WPD
CITY OF OCOEE
RESPONSE TO THE DEPARTMENT OF COMMUNITY AFFAIRS'
OBJECTIONS, RECOMMENDATIONS AND COMMENTS REPORT
FOR COMPREHENSIVE PLAN AMENDMENT 97-1
Prepared by the City of Ocoee Planning Department
February 20, 1997
RESPONSE TO OBJECTIONS, RECOMMENDATIONS AND COMMENTS REPORT
City of Ocoee Amendment 97-1
Proposed Future Land Use Map (FLUM) Amendment CPA-97-1-2-a:
A. DCA Background Summary:
This amendment adds the recently activated Blackwood Avenue/S.R. 50 Special
Strategy Area (SSA) overlay to the FLUM. This SSA was previously listed as a
"future" activity center. SSA's are mixed use areas which modify the permitted land
uses within the overlay area.
B.1. DCA Objection:
The geographical extent of the Blackwood Ave./S.R. 50 SSA, and the SSA's
currently depicted on the City's FLUM, does not correspond to the geographical
extent of SSA's as set forth in Future Land Use Element Subsection "I"3., which
establishes a minimum radius of 1/4 mile.
(It should be noted that the City further revised the proposed amendment to
change the term "Special Strategy Areas"to"Special Overlay Areas"to better
clarify that the underlying land uses remain the same. All notations within the
FLUE where this change has been made have been highlighted. Additionally,
further clarification of the three named types of Special Overlay Areas has
been undertaken throughout the FLUE to promote consistency. For
simplification, the City's responses to the DCA Objections still utilize the
existing terminology.)
City of Ocoee Response:
The black dots in Figures 2 and 14 are a graphic indication of the general
location of the Interchange Impact Areas and Activity Centers. The black dots
were never intended to represent the actual boundaries of the SSA's. Rather,
it was and is the City's intent to adopt individual plans that delineate the
specific boundaries of each area and applicable regulations therein, much like
a PUD development plan would.The proposed text amendments are intended
to delineate the approximate geographical extent of Activity Centers similar
to the adopted language used to delineate Interchange Impact Areas.
In the current(adopted) Comprehensive Plan, Interchange Impact Areas are
described as "all land within a one-quarter mile radius of the interchange
area, including all parcels which fall at least partially within that radius. "
However, on the current (adopted) FLUM, those same Interchange Impact
Areas are not shown within those specific boundaries. The map simply
identifies the general location of each Interchange Impact Area with a black
circle.
1
The City used a similar technique for Activity Centers. The current(adopted)
FLUM shows black circles for each of the existing Activity Centers and the
City proposes to add the Activity Center at Blackwood Avenue and S.R. 50
which was previously identified as a "future" center. In 1991 it was
contemplated that at some point in the future, this area would also be planned
as an Activity Center. This amendment simply places the black circle on the
map in recognition of the need to create a special plan for this area.
II. Proposed Text Amendment CPA-97-1-2 FLUE Data and Analysis Subsection "I"3.
Special Strategy Areas --Activity Center:
A. DCA Background Summary:
This subsection's proposed revisions which are at issue provide the following:
1. that Activity Center boundaries will not be determined until the overlay
district is formally adopted,
2. that all lands within a 1/4 mile radius of the intersection, and all logical
extensions beyond that circle, will be included in order to create a logically
related pattern of development within the Activity Center,
3. that all properties included within the SSA overlay may obtain waivers from
standard zoning and Land Development Codes, and
4. that Activity Centers no longer must be "surrounded by" several residential
areas containing a mix of housing types and densities, but must only
"encourage" such areas.
B.1. DCA Objection:
The proposed revisions to Subsection 1.3. provide that the Activity Centers will
include all lands within a 1/4 mile radius and all "logical" extensions beyond that
circle. The term logical is too vague to provide adequate guidance within the
Comprehensive Plan to determine what the actual extent of an Activity Center may
be. Without such guidance the impacts on facilities and services cannot be
accurately determined and issues such as land use compatibility and consistency
with the goals, objectives, and policies of the City's Comprehensive Plan may be
obscured.
City of Ocoee Response:
The proposed amendment uses a definition which was previously approved
as part of the original Comprehensive Plan in relation to Interchange Impact
Areas. The City selected this approach for consistency's sake. In addition,
the adopted language merely states that"Activity Centers are those areas
2
within the impact zone of major intersections." Nowhere in the adopted
Comprehensive Plan is the term "impact zone" defined. The proposed
amendment is consistent with other adopted language and it further clarifies
the extent of existing and proposed Activity Centers.
As further stated in the proposed amendment"logical extensions" are based
upon logical patterns of development or expansion which would relate certain
properties directly with each Activity Center. These could be properties just
outside the 1/4 mile radius that require access or utility considerations which
relate them to other Activity Center properties, and it is not the intent of this
language to take in any substantive amounts of additional land. In any case,
the boundaries of each Special Overlay Area will only be adopted after a
formal public hearing process and enactment of specific implementing
ordinances by the City Commission. Rather than being too vague, the
proposed text amendment actually provides a more specific description of the
geographic extent of Activity Centers than previously included in the
Comprehensive Plan.
The concept of overlay areas is well supported in the Comprehensive Plan,
and the proposed text amendments are consistent with a number of existing
objectives and policies of the Future Land Use Element.
* Objective 1 of the Future Land Use Element states that "the
development of land shall be regulated to ensure that newly developed
property and redeveloped property is compatible with adjacent uses
and natural features and resources".
• Policy 1.1 states that "The City shall review, through the development
review process, all plans for development and redevelopment to
ensure compatibility with adjacent uses".
* Policy 1.3 provides for the City to "mitigate impacts by using
regulations related to landscaping, setbacks, walls/fences, on-site
parking, on-site traffic flow, lighting, signs, pedestrian access,
vehicular access, and other factors which will mitigate off-site impacts
and enhance the health, safety, welfare, and appearance of the built
environment while providing an effective buffer between uses".
* Policy 1.4 says that "the City shall allow mixed uses in the Special
Strategy Areas (SSA's) which include the Downtown Area, the
Interchange Impact Areas, and Activity Centers, and shall use strict
design criteria to provide an attractive appearance and to offset
negative impacts, sprawling development patterns, and the
proliferation of strip commercial development".
* Policy 1.7 indicates that the land development regulations should
"promote innovative development in those cases where a public
benefit can be realized".
3
Based upon the above objectives and policies, the City of Ocoee felt that the
adopted Comprehensive Plan and Land Development Code were not specific
enough. Accordingly, the City has drafted the proposed text amendments to
further clarify how Special Area plans will address the above concerns. It is
the City's intent to adopt revisions to the Land Development Code which will
make the City primarily responsible for the adoption of Special Area plans
which: (1) ensure development compatibility; (2) reduce, eliminate, and/or
prevent negative impacts; (3) mitigate impacts through the development
review process; (4)enhance the health, safety,welfare, and appearance of the
built environment; (5)allow mixed uses in the Special Strategy Areas; (6) use
strict design criteria to provide an attractive appearance; and (7) promote
innovative development.
As part of Ocoee's Evaluation and Appraisal Report, the City will conduct
additional data collection and analysis with respect to the impact of Activity
Centers and the extent of the use of multi-and mixed use forms of
development within each overlay area. As far as the issue of accurately
determining the impacts these areas have on facilities and services, these
impacts are assessed as part of the City's Concurrency Management System.
The current(adopted) Comprehensive Plan provides policies which address
this issue (Policy 2.1, Policy 2.2, Policy 2.3, Policy 2.4).
B.2. DCA Objection:
The amendment is not supported by data and analysis addressing the impacts of
the cumulative impacts of the Activity Centers (which must be a minimum of 1/4
mile in radius) on facilities and services.
City of Ocoee Response:
Most of the area contemplated to be located within the Activity Centers has
a Commercial Future Land Use designation, and the City is not proposing
that the Activity Center overlay will change the predominant uses permitted
within these areas. Rather, it is anticipated that the market land values will
preclude many mixed use scenarios even though Policies 1.4 and 3.2 allow
for mixed uses. Additionally, the Comprehensive Plan states that zoning
codes will have to be restructured to allow for ancillary and compatible uses.
The data and analysis to address the cumulative impacts of the Activity
Centers was presented when the original Comprehensive Plan was adopted.
The Blackwood Ave.IS.R. 50 Activity Center was already contemplated in the
original data and analysis as a future Activity Center. The addition of this
Activity Center to the existing system of Activity Centers will only serve to
improve conditions on surrounding facilities and affected services. Since
there are no land use changes with this amendment; no new data and
analysis is necessary. However, as part of Ocoee's Evaluation and Appraisal
Report, the City will conduct additional data collection and analysis with
respect to the impact of Activity Centers and the extent of the use of multi-
and mixed use forms of development within each overlay area.
4
B.3. DCA Objection:
The City's Comprehensive Plan indicates that development in Activity Centers may
be eligible for increased floor area ratios (FAR); however, such increases are not
established within the Plan as required by Section 163.3177(6)(a), F.S., and Rule
9J-5.006(3)(c)7., F.A.C.
City of Ocoee Response:
The Future Land Use Element states that "Setback allowances and increased
floor area ratios are two mechanisms that should be considered within the
Activity Center plans." This language is already in the City of Ocoee's
Comprehensive Plan and found to be in compliance by DCA.
B.4. DCA Objection:
It appears that the effect, considering the cumulative extent of all Activity Centers,
of the proposed changes could be a continuous strip of commercial land uses on
S.R. 50. This is inconsistent with FLUE Policy 1.4 which discourages the
proliferation of strip commercial development.
City of Ocoee Response:
Other than three small parcels with a future land use designation of
"Professional Services", all the property along S.R. 50 in Ocoee's planning
area is already designated as Commercial on the current (adopted) FLUM.
Without the development controls provided through Activity Centers,
development of individual projects by individual property owners (i.e. strip
centers)would most likely result.
Activity Centers will actually encourage the joint planning of projects within
these areas by adopting overlay plans that provide for shared access along
S.R. 50 and cross access between properties. Activity Centers will also
encourage shared retention and sanitary sewer facilities,as well as mixed and
multi-use developments in an effort to bring more than just commercial
activity to the area.
The amendment, as presented, is a proven planning tool utilized by other
communities to combat "strip commercial development".
III. Proposed Transportation Circulation Element(TCE) Amendment CPA-97-1-1:
A. DCA Background Summary for TCE Amendment CPA 97-1-1:
This amendment proposes to:
1. assign roadway Level of Service Standards (LOSS's) based on road
ownership;
2. change the LOSS from peak hour to average daily trips; and,
3. drop the LOSS from D to E on all State and County roads.
5
B.1. DCA Objection:
Changing the basis for assigning LOSS from functional classification to ownership
is inconsistent with the definition of LOS.
City of Ocoee Response:
The City of Ocoee has revised this amendment to retain a system where
roadways are functionally classified and the Level of Service Standards are
assigned according to those functional classifications.
The amendment is being made to provide consistency with local jurisdictions
(Orange County and the City of Winter Garden). Those jurisdictions'
Comprehensive Plans currently show LOS E as the Level of Service on Minor
Arterials and Collectors within the Urban Service Area. Principal Arterials
(S.R. 50) will remain at LOS D, again to be consistent with surrounding
jurisdictions. The City will keep all City-maintained roadways at LOS D.
Although Winter Garden and Orange County have adopted LOS E for
Collectors in their jurisdictions, the City of Ocoee has opted to keep its
standard for its roads at a higher Level of Service.
B.2. DCA Objection:
The proposed LOSS is inconsistent with the requirements that roadway LOSS be
based on peak hour trips.
City of Ocoee Response:
The City has removed that part of the amendment and will not change the
language regarding Level of Service Standards based on peak hour trips.
B.3. DCA Objection:
The proposed amendment deviates from the mandatory LOSS for roads included
in the Florida Intrastate Highway System (FINS).
City of Ocoee Response:
The amendment has been changed to denote the Florida Turnpike and the
East-West Expressway as FIRS facilities. The City has adopted the Florida
Department of Transportation Level of Service Standards (LOS C and
LOS D, respectively) for those facilities.
B.4. DCA Objection:
The proposed amendment has not been accompanied and supported by data and
analysis. The proposed amendment is inconsistent with the following policies in the
City's Plan, and adequate information concerning the compatibility and consistency
of the amendment with these objectives has not been included:
TCE Policy 6 4, which requires proposed TCE amendments to include a statement
of findings supporting the proposal. (Note: It is actually Policy 6.5)
6
City of Ocoee Response:
The changes to the Level of Service Standards for minor arterials and state
and county-maintained collectors will not affect the City's Capital
Improvements Program. The City of Ocoee has no authority over the
improvements to state and county facilities nor does the City have
responsibility to fund those projects. Since the City-maintained facilities will
remain at LOS D, and the City's Capital Improvements Element is already
approved for improvements to those facilities based on that Level of Service,
no additional data and analysis is required.
IV. Consistency with State and Regional Comprehensive Plans:
A.1. DCA Objection:
The proposed amendment is inconsistent with the following goals and policies of the
State Comprehensive Plan:
187.201(11)(a) and (11)(b)2., F.S., Developments and transportation
systems should maintain optimum air quality.
- 187.201(12)(a) and (12)(b)3., F.S., Improve efficiency of traffic flow on
existing roads.
- 187.201(16)(a) and (16)(b)1., F.S., Direct growth to areas with sufficient
capacity.
- 187.201(20)(a) and (20)(b)3., and 9., F.S., Coordinate state, regional, and
local transportation plans and ensure timely access to jobs.
- 187.201(25)(a) and (20)(b)5., F.S., Ensure transportation systems provide
maximum access to jobs.
City of Ocoee Response:
With respect to the amendments to the TCE, both Orange County and the City
of Winter Garden have current(approved) Comprehensive Plans which use
the same Level of Service Standards that this amendment specifies. Since
those Plans have been found in compliance and are therefore consistent with
the State Comprehensive Plan, the Level of Service Standards in this
amendment should also be consistent with the State Comprehensive Plan.
7
V. Consistency with the East Central Florida Regional Comprehensive Policy Plan:
A.1. DCA Objection:
The proposed amendment is inconsistent with the following Regional Goals and Policies
of the East Central Florida Regional Comprehensive Policy Plan:
- 57.1: The extent and staging of urban development areas should be defined
according to availability of levels of service while maintaining time frames
for development and regional goals and standards, and supporting a mix
of land uses including affordable housing.
- 57.2: Urban development areas should be based upon a ten year forecast of
urban land demand plus an additional five year supply.
- 57.3: Urban area expansions should be reflected in local capital improvement
programs.
- 57.6: Implement activity centers through land use controls which encourage
connections to supporting land uses that will allow pedestrian and
automotive movement without the need to access collector highways, and
encourage mixed residential employment uses.
- 57.7: Designation of activity centers shall be implemented through an area
specific comprehensive planning process, such as the area wide DRI
process, to plan land uses on a scale and at an intensity consistent with
the availability of facilities on major thoroughfares.
- 57.14: Areas suitable for increased office and hotel DRI threshold intensities
shall be activity centers specifically identified as appropriate in an adopted
local comprehensive plan and meet, at a minimum, the criteria of Policies
57.6 and 57.7. Areas proposed for threshold increase shall follow easily
recognizable geographic boundaries, be delineated on a map and be
described in writing.
60.20: Use comprehensive planning process to ensure future public facility
needs are provided in a timely and efficient manner.
- 60.22: Public facilities shall be designed to service the intensities of
development projected in comprehensive plans.
- 60.23: Intensity of development shall be projected for all land areas as part of
comprehensive studies and used in estimating public facility needs.
- 60.24: Urban development shall be directed where existing public facilities have
sufficient capacity or financial commitments have been made to support
the demands.
- 60.32: Maintain intergovernmental coordination to provide efficient public
facilities.
- 64.1.2: Levels of Service shall be assigned on the regional highway system, in
urban fringe and outlying business districts, as Level of Service D.
- 64.2: Local governments should coordinate with adjacent local governments,
the MPO, and FDOT in setting and modifying levels of service on regional
roads.
- 65.2: Growth management policies and strategies shall be based upon
quantifiable data developed with neighboring jurisdictions and consistent
with recognized area wide projections.
8
- 65.4: Incorporate regional standards and levels of service into planning
activities.
City of Ocoee Response:
With respect to the amendments to the FLUM and FLUE regarding Activity
Centers, this concept is not new to the City of Ocoee's Comprehensive Plan.
There are four (4) existing Activity Centers in the City's current (adopted)
Comprehensive Plan which has been found to be in compliance by DCA. The
Comprehensive Plan never specified boundaries for those Activity Centers.
Boundaries will be determined when the special overlay plans are formally
adopted.
This amendment simply adds the fifth Activity Center (intersection of
Blackwood Avenue and S.R. 50)to the Activity Center General Locations Map
(Figure 14). This Activity Center was contemplated in the original
Comprehensive Plan as a "future" Activity Center. With the recent master
planning discussed by Health Central Hospital, and the recent opening of the
West Oaks Mall, the City of Ocoee believes that this is an appropriate time to
plan for this area and that the Activity Center designation is the first step
towards a coordinated plan for the area.
The language in the amendment regarding the 1/4 mile radius and logical
extensions thereof, is meant to clarify what was meant by "the impact zone
of major intersections". Again, the City is not adding new concepts or
processes to the Comprehensive Plan. Figure 14 is labeled Activity Center
General Locations Map. The City did not alter any land uses with these
changes, therefore the additions do not necessitate additional data and
analysis. Accordingly, the Plan remains consistent with the Regional Goals
and Policies of the East Central Florida Regional Comprehensive Policy Plan.
With respect to the TCE amendments,the four functional classifications in the
Plan are now consistent with the federal definitions. The specific roadway
classifications are from the U.S. Department of Transportation Federal
Highway Administration list. The level of service standards are consistent
with local jurisdictions(Orange County and the City of Winter Garden)and the
City has agreed to follow the FDOT Level of Service Standards on the FIHS
facilities. In light of the fact that Orange County and the City of Winter
Garden have Comprehensive Plans which use the same functional
classifications and level of service standards, and those Plans have been
found in compliance,we believe this amendment is consistent with Regional
Goals and Policies.
9
ORDINANCE NO. 97-09
AN ORDINANCE OF THE CITY OF OCOEE, FLORIDA AMENDING THE
FOLLOWING ELEMENTS OF THE OCOEE COMPREHENSIVE PLAN AS
ADOPTED ON SEPTEMBER 18, 1991 BY ORDINANCE NO. 91-28 AS
AMENDED: FUTURE LAND USE ELEMENT, TRAFFIC CIRCULATION
ELEMENT; AMENDING FIGURES 2 (FUTURE LAND USE MAP) AND 14
(ACTIVITY CENTERS GENERAL LOCATION MAP) OF APPENDIX A TO
THE OCOEE COMPREHENSIVE PLAN; PROVIDING FOR SEVERABILITY;
PROVIDING AN EFFECTIVE DATE.
BE IT ENACTED BY THE CITY COMMISSION OF THE CITY OF OCOEE,
FLORIDA, AS FOLLOWS:
SECTION 1. Findinas. Puroose. and Intent. In adopting this Ordinance,
the City Commission hereby makes, expresses, and incorporates the following
findings, purposes, and intent:
a. On September 18, 1991, the City Commission of the City
of Ocoee ("City Commission") adopted a new comprehensive plan
pursuant to Chapter 163, Florida Statutes, by adopting Ordinance No.
91-28, which has been amended from time to time (the "Ocoee
Comprehensive Plan").
b. The City has initiated CPA-97-1-1 in order to amend the
Traffic Circulation Element of the Ocoee Comprehensive Plan.
c. The City has initiated CPA-97-1-2 in order to amend the
Future Land Use Element of the Ocoee Comprehensive Plan regarding
Special Strategy Areas and rename them Special Overlay Areas and to
amend Figures 2 (Future Land Use Map) and 14 (Activity Centers
General Location Map) of Appendix A of the Ocoee Comprehensive Plan
to reflect an Activity Center at Lake Bennet.
d. The City has initiated CPA-97-1-3 to update Figure 2
(Future Land Use Map) of Appendix A of Ocoee Comprehensive Plan to
include annexations and a small scale comprehensive plan amendment
which have occurred since the last revision of Figure 2.
e. On November 12, 1996, the City of Ocoee Local Planning
Agency ("LPA") held an advertised public hearing and recommended
transmittal of Amendment Nos. CPA-97-1-1, CPA-97-1-2, and CPA-97-
1-3 to the Florida Department of Community Affairs ("DCA").
f. On November 19, 1996, the City Commission held an
advertised public hearing and approved transmittal of Amendment Nos.
CPA-97-1-1, CPA-97-1-2, and CPA-97-1-3 to DCA.
g. On February 10, 1997, the City received DCA's Objections,
Recommendations, and Comments Report (the "ORC Report").
h. On March 4, 1997, the City Commission held an advertised
adoption public hearing with respect to Amendment Nos. CPA-97-1-1,
CPA-97-1-2, and CPA-97-1-3.
i. The City has analyzed the comments set forth in the ORC
Report and prepared a response to the ORC Report. At the above
referenced public hearing held on March 4, 1997 the City Commission
-2-
approved a response to the ORC Report and directed that such response
be forwarded to DCA.
j. All required public hearings have been held after due public
notice in accordance with Chapter 163, Florida Statutes, Chapter 9J-11,
Florida Administrative Code, and Section 1-8 of Article I of the City of
Ocoee Land Development Code.
SECTION 2. Authority. 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, Chapters 163 and 166, Florida Statutes, and Section 1-8 of Article
I of the Ocoee Land Development Code.
SECTION 3. Plan Amendment a. The Traffic Circulation Element, the
Future Land Use Element, and Figures 2 (Future Land Use Map) and 14 (Activity
Centers General Location Map) of Appendix A of the Ocoee Comprehensive Plan as
set forth in CPA-97-1, CPA 97-1-2, and CPA-97-1-3 are hereby amended to read as
reflected in Exhibit A attached hereto and by this reference incorporated herein with
the amendment to the Traffic Circulation Element and the Future Land Use Element
being shown with additions being shaded and deletions being struck through.
SECTION 4. Severability. If any section, subsection, sentence, clause,
phrase, or portion of this Ordinance is for any reason held invalid or unconstitutional
by any court of competent jurisdiction, such portion shall be deemed a separate,
distinct, and independent provision and such holding shall not affect the validity of the
remaining portion hereto.
-3-
SECTION 5. effective Date. This Ordinance shall become effective the
date DCA or Administration Commission issues a final order finding the amendments
to the Ocoee Comprehensive Plan to be in compliance in accordance with Section
163.3184, Florida Statutes, whichever occurs earlier. No development order,
development permits, or land uses dependent on the amendments may be issued or
commence before the effective date of this Ordinance. If a final order of
noncompliance is issued by the Administration Commission, the amendments may
nevertheless be made effective by adoption of a resolution affirming the effective
status, a copy of which shall be sent to DCA, Division of Resource Planning and
Management, Plan Processing Team.
PASSED AND ADOPTED this _ day of , 1997.
APPROVED:
ATTEST: CITY OF OCOEE, FLORIDA
Jean Grafton, City Clerk S. Scott Vandergrift, Mayor
(SEAL)
ADVERTISED February 27, 1997.
READ FIRST TIME AND ADOPTED
ON , 1997, UNDER
AGENDA ITEM NO.
-4-
FOR USE AND RELIANCE ONLY BY
THE CITY OF OCOEE, FLORIDA
APPROVED AS TO FORM AND
LEGALITY this day of
, 1997.
FOLEY & LARDNER
By:
City Attorney
CIA W fl I W DLS OCO@1ORDINAN.000 I 237M I MOOR MAI IU
-5-
I
EXHIBIT A
CPA 97-1-1
(Traffic Circulation Element)
CPA 97-1-2
(Future Land Use Element, Future Land Use Map, Activity Centers General Location Map)
CPA 97-1-3
(Future Land Use Map)
CPA-97-1-1
. 1
CPA-94-1-2
CPA-97-1-1
TRAFFIC CIRCULATION ELEMENT
I . PURPOSE AND FORMAT
The City of Ocoee has developed a transportation management
system to maintain orderly, compact, and desirable growth
through the comprehensive planning process . The Traffic
Circulation Element of Ocoee ' s Comprehensive Plan is an
element of this overall process. Pursuant to Chapter 163 ,
Florida Statutes, and Chapter 9J-5 Florida Administrative Code
(FAC) , the goal of the Traffic Circulation Element is to
provide guidance in developing a transportation system which
will adequately serve the travel needs of the area through the
first decade of the twenty first century.
The basis for planning Ocoee ' s traffic circulation system is
the City' s Future Land Use Element . The forecast of future
land uses and locations of developments depicts which existing
roads need improvements and where new roads will be needed.
Also, the Land Use Element governs the feasibility of
providing efficient, effective mass transit services for
general transportation. The goal is to insure that as the
community grows, the transportation system will be expanded to
meet the new travel demands and will remain consistent with
the goals and objectives of the community. Future land use
within the community will be supported by a transportation
network that includes the pi incipal highway ai tet ial system.
the East West Expressway, the Florida Turnpike, the
proposed Western Beltway, SR 50, SR 438, Maguire Road, and
Clarke Road. ciic basic to the Land Use Element .
Ocoee like other communities of Central Florida will have to
cope with increased traffic congestion and the need for access
routes to developments . Coupled with this need for adequate
transportation is the issue of how and who will fund the
construction of these roads . This Element addresses the
questions of what is needed, why, where, when and who will pay
for the transportation system changes that will be occurring.
This element includes : (1) an introduction; (2) an inventory
of the existing traffic circulation system, including the
existing traffic circulation map; (3) an analysis of existing
roadway deficiencies within the traffic circulation system;
(4) an analysis of projected needs (5) schedule for roadway
projects; and (6) a listing of goals, objectives, and
policies .
1
CPA-94-1-2
CPA-97-1-1
II . INTRODUCTION
Ocoee, as described in other elements of this Comprehensive
Plan, is a moderately growing community of about 16, 000 people
with an annual growth rate of approximately 400 single family
households . The rate of growth is expected to increase with
the completion of two limited-access roadways to the west and
south of the City and Clark Road on the east side of Ocoee .
The two limited-access roadways, the Western Bypass Beltway
and the East West Expressway, play a pivotal role in shaping
where future new roads and road upgradings will be needed
within and about Ocoee. As of August 1991, the City requested
revision of the Orlando Urban Area to add the City of Ocoee.
On September 20, 1992, the City of Ocoee was notified by the
Director of the Orlando Urban Area Metropolitan Planning
Organization the Urban Boundary had been officially revised to
include the City of Ocoee. This change was justified to FDOT
and the FHWA based on population density and growth meeting
the census criteria for urban definition.
The Traffic Circulation Element was developed based on a study
area larger than the current and foreseen corporate limits of
the City and includes the area recently adopted as the Orange
County/City of Ocoee Joint Planning Area (February 1994) . This
study area is bound by:
o Roberson and Moore Roads to the south;
o Good Homes and Apopka/Vineland Roads to the east;
o McCormick Road to the north;
o Ocoee-Apopka, East Crown Point and Windermere Roads to
the West . (Figure 1)
There are two three major arterial roads that currently serve
the City of Ocoee : W.B. McGee Highway (SR 50) , the East-West
Expressway, and Florida' s Turnpike (SR 91) . W.B. McGee
Highway is a major arterial running from Florida' s west coast
to the east coast . The East-West Expressway' s western terminus
is at S .R. 50 and Clarke Road in Ocoee . It provides an
express route to downtown Orlando and points east . Florida' s
Turnpike is a four-lane limited-access roadway that runs
southeast from Wildwood, to Homestead and accesses Ocoee by an
interchange with SR 50 . The City is also served and bisected
by Silver Star Road (SR 438) . Silver Star Road functions as
a urban minor arterial route serving area-to-area
and cross area travel and connects with utha_ principal
arterials . Bluford Avenue (SR 437) as a minor arterial,
t.onnects SR 50, SR 438, and Old Winter Gaiden Road.
2
. 1
CPA-94-1-2
CPA-97-1-1
III . INVENTORY OF EXISTING CONDITIONS
A. Existing Conditions
As of December 1993 , the City' s roads were inventoried for
traffic volumes, pavement widths, functional classification,
and number of lanes . The purpose of this task was two fold.
One was to assess current traffic operating conditions. The
other was to develop a computer based data file for developing
a traffic model to emulate existing traffic flow on the City' s
streets. This model could then be used to model future
traffic flow given future land uses. This model has been used
to provide necessary data for development of an "improvement-
driven" transportation impact fee system.
B. Functional Classification
Roads have two main functions : (1) land access and, (2)
traffic movement . A road which is oriented towards land
access has lower speeds and less access control . These
characteristics make it less suitable for mobility of through-
way movement . Conversely, a road which is designed for
mobility has higher speeds and more access control, which
makes it less desirable for land access . The fu11L.Liulr
L1a5ificaLion of major loads within the CiLy ale shown in
Figare 2 .
The objective of functional classification is to group into
connected systems, those roads and streets having similar
functions, purposes, and importance within the Ocoee
transportation system. In turn, the systems are distinguished
by their general functions and levels of importance in serving
the public .
Functional classification aids in:
a. determining the relative importance of the roads,
b. establishing the basis for levels of service and design
standards,
c . evaluating deficiencies and needs,
d. establishing improvement priorities,
e. selecting responsibility for the roads, and
f . determining funding and financing policies.
The roads within the Study Area were placed in four classes .
1 . Freeways/Expressways pioTide foi the sapid and effiLieuL
n«vement of large volumes of Lhrough7 traffic havilly lolly
trip 1e11gL11.7 LCtWCCll aica5 ciiiU aC.
3
CPA-94-1-2
CPA-97-1-1
Access is provided by inteLclanges . CuiienLly , the
Florida Turnpike is the only- expressway located in the
-study area .
2 . Arterial roads provide movement across aLCab fyL
relatively large numbers of vehicles . This type of load
has numerous at-glade inter�eu
ty adjacent lands . This functional classification
hiyllway . Speed limits for arterial luadwayb La11ye fiuur
30 mph to 55 mph.
These ale several arterial roads within the Ouoee Study Aiea.
These include SR 50, Kissimmee Avenue, Silver Stai Ruad,
et.oee-Apopka Ruad, Claicona-Ocoee Ruad, and Apopka-Vineland
Road.
3 . Collector Roads provide access to abtaLLilly piyYCLLy ab
well as providing mobility between arterial and local
�LLccL� . Within the study area, these ale several
uolleLLoIs such a5 White Road (OLlalido Avenue) , SLyiy
Road, Wurst Road, A.D. Mims Road, Hackney Piaiiie Road,
Lakewuod Avenue, Good Homes Road, McCormick Road, and
East Crown Puint Road.
4 . Local Roads provide direct access to adjacent land uses
and local traffic movement . Because these Lyadway 11av�
little access coirtiol and lower travel speeds, they lack
of L adways within the Study ALea ale local loads of only
local interest . Local Lyad ays have speed limitb beLweeir
25 mph to 40 mph.
1 . Principal Arterials :
These roadways serve the major centers of activity of a
metropolitan area and are the highest traffic volume
corridors as well as serving the longest trip desires .
The principal arterial system should carry the major
portion of trips entering and leaving the urban area, as
well as the majority of through movements desiring to
bypass the central city. In addition, significant intra-
area travel, such as between central business districts
and outlying residential areas, between major inner city
communities, or between major suburban centers should be
served by this class of facilities .
2 . Minor Arterials :
These roadways interconnect with and augment the
principal arterial system and provide service to trips of
5
CPA-94-1-2
CPA-97-1-1
moderate length at a somewhat lower level of travel
mobility than principal arterials . This system also
distributes traffic to geographic areas smaller than
those identified with the higher system. The minor
arterial street system contains facilities that place
more emphasis on land access than the higher system, and
offers a lower level of traffic mobility.
3 . Collector Streets :
These roadways provide both land access and traffic
circulation within residential neighborhoods, commercial
and industrial areas . It differs from the arterial
system in that facilities on the collector system may
penetrate residential neighborhoods, distributing trips
from the arterials through the area to the ultimate
destination. Conversely, the collector street also
collects traffic from local streets in residential
neighborhoods and channels it into the arterial system.
4 . Local Streets :
The local street system comprises all facilities not on
one of the higher systems . It serves primarily to
provide direct access to abutting land and access to the
higher order systems . Local streets offer the lowest
level of mobility. Service to through traffic movement
usually is deliberately discouraged.
These roadway classifications and definitions are taken from the
Highway Functional Classification Concepts, Criteria and Procedures
manual of the U. S . Department of Transportation Federal Highway
Administration.
In accordance with the above definitions, the City of Ocoee has
classified each of the roadways it monitors within its planning
area . These classifications are consistent with the Federal
Functional Classifications as outlined in the District Five Florida
Department of Transportation Urban Roads Master List . Further, the
City of Ocoee has designated Level of Service (LOS) Standards for
these roadways . The LOS standards for state and county facilities
are consistent with surrounding jurisdictions .
6
I
CPA-94-1-2
CPA-97-1-1
ROADWAY CLASSIFICATION LEVEL OF SERVICE (LOS)
All Principal Arterials* LOS D
All Minor Arterials LOS E
State Collectors LOS E
County Collectors LOS E
City Collectors LOS D
Local Streets LOS D
* The Florida Turnpike and the East-West Expressway are
classified as principal arterials, but they are also FIHS
facilities . The City has adopted the FDOT Level of Service
Standards for these roadways (LOS C and LOS D, respectively) .
Figure 2 outlines each of the roadways the City monitors and
provides the functional classification and level of service
standards .
7
CPA-94-1-2
CPA-97-1-1
FIGURE 2
ROADWAY CLASSIFICATION AND LEVEL OF SERVICE (LOS) DESIGNATION
ROA3Lt :. R:! :.. IO , G'7 S i.ii:: 1,TXO .....S'..'x k4iia4Aii Y+. :. C,',iiiC i T?C A�":>:::>':: .*f. :.:::
A.D. MIMS ROAD Collector * County E
ADAIR STREET Collector City D
APOPKA-VINELAND ROAD Minor Arterial * County E
BOWNESS ROAD Collector * City D
CLARCONA-OCOEE ROAD
Silver Star to Crown Point Collector * County E
Crown Pt to Apopka-Vineland Minor Arterial * County E
CLARKE ROAD Collector * City D
FLEWELLING STREET Collector * City D
FULLERS CROSS ROAD Collector County E
GENEVA STREET Local City D
GOOD HOMES ROAD Collector * County E
HACKNEY-PRAIRIE ROAD Local City D
JOHIO SHORES ROAD Collector City D
KISSIMMEE AVENUE Collector * City D
MAGUIRE ROAD Collector * City D
MARSHALL FARMS ROAD Collector * City D
MCKEY STREET Minor Arterial * State E
OCOEE-APOPKA ROAD Collector * County E
OCOEE HILLS ROAD Collector * City D
OLD WINTER GARDEN RD Minor Arterial * County E
PROFESSIONAL PARKWAY Collector City D
RUSSELL DRIVE Local City D
S. R. 50 (West Colonial Drive) Principal Arterial * State D
S. R. 438 (Silver Star Road) Minor Arterial * State E
S. R. 439 (Bluford Avenue)
S.R. 50 to McKey Minor Arterial * State E
McKey to Silver Star Collector * State E
S.R. 91 (Florida Turnpike) Principal Arterial* State C**
S.R. 408 (East-West Expressway) Principal Arterial* State D**
STORY ROAD Collector * County E
WHITE ROAD Collector City D
WILLOW CREEK ROAD Local City D
WURST ROAD Collector * City D
* Functional classification as reported in the U.S. Department of Transportation's Federal Highway
Administration's Riahwav Functional Classification Concepts. Criteria and Procedures manual.
** The Florida Turnpike and East-West Expressway are FIHS facilities. The City of Ocoee uses FDOT Level of
Service Standards for these roadways.
8
CPA-97-1-1
FIGURE 2
_,_._ _ I F.City of Ocoee r
Grange Czeaty. Florida -
_ 2
e4.
—
•
FUNCTIONAL l
-
Cr _ �
ASSWFICAT1ON -
— — a
00 _
40
— cytic _S
— Ara
—cry Luna = v
No
GS
77-:
I I = 77- __ . I. - e
iI iI
I )
1 '`
\L , _ .
1
— TRAFFIC CIRCULATION ELEMENT —
CPA-94-1-2
CPA-97-1-1
VII . GOALS, OBJECTIVES, AND POLICIES
The City endorses this list of "Goals and Objectives" to be
used in the development of the plan. The Goals and Objectives
emphasize such key issues as : providing access to and
stimulating the business and employment centers; preserving
the cultural and environmental aspects of the community;
offering mobility to the transportation disadvantaged and
handicapped. The formation of the list insures that the
transportation system developed will be consistent with the
goals and objectives of the community and contribute to its
social and economic well-being.
To achieve all the goals in one system, of course, would be a
"utopian" or ideal system. Some trade-offs are necessary in
order to have a plan that is acceptable to the various aspects
of the community. The cooperative effort of planning is
emphasized in order to get the most efficient system while
still achieving as many of the goals and objectives as
feasible .
GOAL
PROVIDE A TRANSPORTATION SYSTEM THAT IS COORDINATED WITH THE
PATTERN OF LAND USE AND ACTIVITIES TO ACHIEVE SAFE, EFFICIENT
MOVEMENT OF PEOPLE AND GOODS WITHIN OCOEE. THIS SYSTEM IS TO
INCLUDE STREETS AND HIGHWAYS AS WELL AS PUBLIC AND NON-
MOTORIZED TRANSPORTATION.
Objective 1
Provide a safe, efficient, economical transportation system.
Policy 1 . 1
The City shall require roadway designs which provides for
public safety and preserved operating capacity by:
a ensuring that where possible all plans conform to
the Florida Manual of Uniform Minimum Standards for
Design, Construction and Maintenance for Streets
and Highways, and Florida' s Level of Service
Standards and Guidelines for Planning (FDOT) .
b. controlling direct access location from driveways and
local roads through the site plan approval process using
Rules 14-96 and 14-97, F.A.C. and other Standard
Engineering References,
47
ti
CPA-94-1-2
CPA-97-1-1
Policy 6 . 4
The City hereby adopts the following peak hours LOS standards
for each listed facility type :
a. minor arterials and collector roadway - LOS Standard D
L. arterial roadways - LOS Standard C D
c . freeway faLilltles - LOS Standard C D
ROADWAY CLASSIFICATION LEVEL OF SERVICE (LOS)
All Principal Arterials* LOS D
•
All Minor Arterials LOS E
State Collectors LOS E
County Collectors LOS E
City Collectors LOS D
Local Streets LOS D
* The Florida Turnpike and the East-West Expressway are
classified as principal arterials, but they are also FIHS
facilities . The City has adopted the FDOT Level of Service
Standards for these roadways (LOS C and LOS D, respectively) .
Policy 6 . 5
All proposed amendments to this Traffic Circulation Element
shall include a statement of findings supporting such
proposals .
Policy 6 . 6
For the evaluation of existing or near term traffic
conditions, the City may use models and other assessment
techniques as follows :
a . Highway Capacity Manual
b. Generalized Level of _Service Table
c . Florida ' s Level of Service Standards and Guidelines
Manual for Planning (FDOT)
d. Travel Time Delay Studies in accordance with FDOT
Guidelines
e . ART_PLAN or other FDOT approved Level of Service
Calculation Software
52
a
1
i
CPA-97-1-2
FUTURE LAND USE ELEMENT -
CPA-97-1-2
3. Infill
Infill is defined as those properties inside the urbanized portion of the area which
already have public services and infrastructure but have been skipped over in the
development process. Generally, infill sites are limited in size to a few acres or less
and are located in an area where the surrounding development is at least 15-20
years old. The bulk of the property has been vacant or underutilized for at least five
years. This development alternative is advantageous to local governments for a
number of reasons, including, but not limited to a means of reducing infrastructure
investment, improving tax bases, and often restoring the vitality to declining
neighborhoods. For developers, the advantages include being close to commercial
areas and having infrastructure already in place.
The following conditions are important to the successful development of a site: 1)
proximity to employment; transportation; and shopping, cultural, recreational, and
other facilities; 2) evidence of successful small scale individual rehabilitation or
redevelopment projects; 3) innovative solutions to those limitations that have
prevented sites from being developed; and 4) a minimum of problems with crime,
pollution, or services.
Promoting development can be accomplished through the provision of economic
and regulatory incentives. Such incentives may include floor area ratio credits,
streamlining the permitting process for development proposals within these areas,
zoning variances on building setbacks, side yard and parking requirements and
allowing sufficiently higher densities to make investment profitable and affordable
housing possible.
The most important role that the City can play in the process of infill development
is that of providing the necessary and costly initial research. This includes the field
and data survey to determine what land is available and what the development
problems are. The resulting catalog of sites would permit local officials to determine
what alternative development implications would mean to the public and determine
procedures or which of the aforementioned incentives should be utilized to
encourage the maximum private development.
Special Strategy Overlay Areas
While most of the City of Ocoee will see land use develop not unlike that observed
in the recent past, there are three twe areas,
and ono that will need special attention to promote growth ; these shall be termed
"Special Overlay Stratcgy Areas (SSAs). In realizing the impacts these areas will
have on the City, they will become areas that require special development plans.
These individual special development plans, namely, Interchange Development
Plans, the Downtown Redevelopment Plan, and Activity Center Plans, shall be
prepared by the City in cooperation with landowners having properties situated
within these Special Overlay Areas to ensure the most feasible use of these lands.
The Land Development Code shall require all developments within the Special
41
CPA-97-1-2
Overlay Areas to be consistent with each special development plan. First,
"Interchange Impact Areas" (IlAs) are areas that will provide access to expressways
that generate high volumes of trips, and convenient access to the Orlando
International Airport, industrial and commerce parks to the south and east, the
Florida Turnpike, the Beeline Expressway, and downtown Orlando. Through these
1-I-As,lnterchange Impact Areas, the City of Ocoee will evolve into a transportation
hub - a regionally significant center. not unlike thc Planning of Developments of
Regional Impact (DRIs). Secondly, the "Downtown Redevelopment Areas" will
also promote interest and concern. Thesc This areas presents problems with
economic impacts involving redevelopment, retrofitting and gentrification. 11n
Third, "aActivity eCenters" have been identified. These mixed and
multi-use centers will be at the intersection of Clarke Road and Silver (S.R. 438)
,and at the intersection of the Blackwood Avenue extension and S.R. 50 (the
location of the new West Orange Hospital), the intersection of Clarke Road and
State Road 50, the intersection of Good Homes Road and State Road 50, and the
intersection of Bluford Avenue and State Road 50.
1. Interchange Impact Areas {HAs}
IIAs Interchange Impact Areas include the following locations: (a) the proposed
interchange of the Northwest-- Western Beltway and Fuller's Cross Road; (b) the
Northwest Western Beltway and Silver Star Road (S.R. 438); and (c) the Northwest
Western Beltway and S.R. 50.
The land uses that take
place in these areas could radically affect the City of Ocoee.
I areas, thc City will require
the development of Interchange Development Plans.
By January 1, 1992,
on greater than 10 acres to be consistent with the Interchange Development Plans.
maximum and most feasible use of these areas. In addition, carrying capacities of
these areas shall be determined through the transportation system. For each area,
existing trip generation data shall be developed. The City will set a limit on the
additional trip generations permitted within these areas for the purpose of
concurrency.
42
CPA-97-1-2
At the time this carrying capacity has been met, additional development will not
occur until the carrying capacity has been increased to allow for greater trip
generations. These Plans shall also predict the amount of sanitary sewer and
potable water that will be necessary to serve these areas.
It is consistent with the Future Land Use Map that these areas include a mix of retail,
general commercial, and light industrial. In the development of these areas, only
those plans that provide a sustainable development shall be approved.
Those Plans that promote the locations of regional headquarters, commerce, office
and industrial parks shall be considered first and foremost. Developments that will
not be permitted to occur in mass quantity include, but are not limited to, strip
commercial centers and great trip generators, i.e., corner markets, gas stations, and
fast-food restaurants. To ensure efficient traffic flow, curb cuts shall be restricted
in these areas.
IlAsThe specific boundaries of each Interchange Impact Area will be determined at
the time each overlay area is formally adopted and shall include all land within a
one-quarter mile radius of the interchange area. If any portion of a parcel lies within
the radius of the area, the-owners of the parcel shall be incorporated within required
the Interchange Development Plan. Those
properties that have approved final development plans as of the adoption of this
plan, shall be exempt from the requirement to coordinate in the formulation of the
Plan; however, they shall be encouraged to provide a development compatible with
the adjacent uses proposed in the HA Interchange Impact Area.
Figure 12 identifies the location of the proposed Interchange Impact Areas.
2. Downtown Redevelopment Areao (DRA)
The objective of the DRA Downtown Redevelopment Area is to attract reinvestment
in the downtown area of Ocoee. Through flexible land development regulations and
codes, innovative designs, such as on-street parking, pedestrian ways, and mixed
use scenarios will be promoted. Density allowance, among other incentives may
be offered to developers to attract them to the area.
Downtown redevelopment can benefit the City by increasing the tax base. Benefits
to residents include increased property values, a unique visual and pedestrian
experience, opportunities to live and work within the same community, and
economic viability to those who own property within the area.
Proposed development schemes should include visual landmarks and public areas;
quality pedestrian areas; mixed uses, including retail, general commercial,
restaurants, , a variety of I eedensity residential uses and
43
f
CPA-97-1-2
professional offices and services. Within the DRA Downtown Redevelopment Area,
pedestrian travel shall be encouraged by guiding the use and setbacks of buildings,
and street and sidewalk design. Buildings should be close to the street and include
retail and restaurant uses on the first floor. Sidewalks should include benches and
landscaping. The street design should provide for well planned corridors that are
aesthetically pleasing and pedestrian oriented.
One method of underwriting redevelopment is tax increment financing. This method
"freezes" the tax base within the renewal area when the project is officially
established. Additional real property taxes generated as new buildings are
constructed are not added to the general revenue of the City as is normally done,
but are fed back into a special fund for the renewal are to be used for public
improvements and neighborhood purposes that make the area more attractive for
private investment and further renewal. Usually, a number of years or a limit on the
total amount of taxes committed to the renewal area are specified at the beginning
of the project. Initial start-up costs are met by the sale of municipal bonds to be
repaid from the tax increment funds.
Figure 13 identifies the proposed Downtown Redevelopment Area of area the City.
will consider for redevelopment activitic3
3. Activity Centers
Activity Centers are those areas within the impact zone of major intersections. The
Activity Centers identified by the City include:
a. Good Homes Road Activity Center at Good Homes Road
and State Road 50
b. West Oaks Activity Center at Clarke Road and State Road 50
c. Minorville Activity Center at Bluford Avenue and State Road 50
d. Lake Bennet Activity Center at Blackwood Avenue and
State Road 50
e. Silver Star Activity Center at Clarke Road and Silver Star Road
Road and S.R. 50, among others(Scc Figure 14.)
The specific boundaries of each Activity Center will be determined at the time each
overlay area is formally adopted. The boundaries shall generally include all
properties within a one-quarter mile radius of the Activity Center's main intersection
or any parts of any subdivisions or parcels within the one-quarter mile radius as well
as any logical extensions beyond those boundaries. The boundaries are to be
determined based upon a logical pattern of development or expansion which would
relate certain properties directly with each Activity Center.
44
L
CPA-97-1-2
Activity Centers will be the major nodes of employment within the City and will
include residential and support commercial land uses. In order to create successful
activity centers, policies must be included within this Comprehensive Plan to direct
the Activity Center plans. Mixed and multi land use and pedestrian as well as transit
travel must be emphasized in the design of these Centers. To achieve this mixed
and/or multi use scenario, which may zoning codcs will have to be restructcd to
allow for ancillary and compatible uses, properties within these Centers may obtain
waivers from standard zoning and Land Development codes where a coordinated
pattern of development further enhances the goals established for each Activity
Center. Setback allowances and increased floor area ratios are two mechanisms
that should be considered within the Activity Center plans.
Specifically, these Activity Centers should encourage
residential areas that contain a mix of housing types and densities. Retail, service
and recreational facilities shall also be integrated within these areas. Non-
residential areas shall establish the hub and the focus of the area. Retail and
service establishments, including day care centers, government buildings, and
cultural centers should also be included within the Centers. Activity Centers should
be within walking or bicycling distance to most residents. Sidewalks should be
placed on both sides of the roadways and shall be connected to sidewalks within
residential developments. All parking areas shall be heavily landscaped and
setback allowances shall may be given for any parking located behind buildings.
Figure 14 identifies the location of the proposed Activity Centers.
44.1
CPA-97-1-2
enforcing specific environmental performance standards, consistent with state
and/or federal standards and with the City's technical enforcement capabilities.
Standards shall be based on the measurement of the undesirable characteristics
at the property line of the land on which the generating use or activity is located and
shall be based on performance levels deemed to prevent nuisance to surrounding
properties.
Policy 1.3
The City shall mitigate impacts by using regulations related to landscaping,
setbacks, wall/fences, on-site parking, on-site traffic flow, lighting, signs, pedestrian
access, vehicular access and other factors which will mitigate off-site impacts and
enhance the health, safety, welfare and appearance of the built environment while
providing an effective buffer between uses. Development regulations will be
updated by 1992.
Policy 1.4
The City shall allow mixed uses in the Special Strategy Overlay Areas {SSA's)
which include the the Interchange Impact Areas, the Downtown Redevelopment
Area, and Activity Centers, and shall use strict design criteria to provide an
attractive appearance and to offset negative impacts, sprawling development
patterns, and the proliferation of strip commercial development.
Policy 1.5
The City shall require that industrial parks develop with internal traffic circulation and
buffering from adjacent roads and properties.
Policy 1.6
The City shall control strip commercial development through access limitations by
restricting commercial land uses to the intersections of arterial and non-residential
collector roads, along designated arterial and collector roads and (3)within Planned
Unit Developments. This shall be accomplished through the land development
regulations.
Policy 1.7
The land development regulations shall promote innovative development in those
cases where a public benefit can be realized and impacts can be offset by the
development, as follows:
Utilize Planned Unit Development Zoning to allow for mixed uses and
unconventional development designs in those cases where the developer
can demonstrate improved living environments, protection of natural
resources or increased effectiveness of service delivery.
46
CPA-97-1-2
Policy 3.3
The City shall support the redevelopment of the downtown areas by providing preferential
incentives; conducting special studies; and encouraging the centralization or commercial,
governmental, retail, residential and cultural activities.
Policy 3.4
The City shall provide public services and facilities to all neighborhoods in an effective
manner.
Objective 4
By 1992, the City shall develop land development regulations to protect and properly utilize
natural resources in accordance with the Conservation Element, the State and Regional
Policy Plan, and the following policies:
Policy 4.1
The City shall protect areas of environmental concern and areas of scenic value, as
identified in the Conservation Element, through development regulations and public
programs, including, but not limited to environmental awareness programs at recreational
facilities and in schools.
Policy 4.2
The City shall use development regulations to protect air and water quality, flood-prone
areas, natural wetland, natural habitats, and the Floridan and surficial aquifers. This shall
be accomplished by such regulations as are described in Policy 4.3. In addition, the City
shall cooperate with federal, state and regional environmental management agencies to
identify and monitor unusual activities associated with non-residential uses and to refer
observed violations to the appropriate enforcement authorities.
Policy 4.3
Within one year of the effective date of this Comprehensive Plan, the City shall implement
land development regulations to protect surface water quality including, but not limited to:
restrictions in building setbacks, land use restrictions to ensure compatibility, development
limitations in floodplains, and upland and wetland protection. Land development regulations
shall include restrictions on development within the 100-year flood elevation. Flood
elevations shall not be
52
Y•
City of Ocoee Proposed Comprehensive Plan Amendment
CPA-97-1-2-a Future Land Use Map Revision
Location: Intersection of Blackwood and State Road 50.
Proposed Change: Revise the Future Land Use Map (Figure 2, Appendix A) to
show a future Activity Center at the intersection of Blackwood
and S.R. 50.
~' . 0
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Existing Proposed
Justification:
The proposed Comprehensive Plan Amendment is not a land use amendment and does not
require the submittal of supporting data and analysis. If approved, this amendment would
formalize a previously designated Activity Center at the intersection of Blackwood and State Road
50. In the adopted Comprehensive Plan, this intersection is identified as a future Activity Center
on page 42 of the Future Land Use Element. Land in the proximity of this intersection has started
to develop recently and it is recommended that the Future Land Use Map be amended to show
this Activity Center so that potential developers may be advised of its Activity Center designation.
r
City of Ocoee Proposed Comprehensive Plan Amendment
CPA-97-1-2-b Appendix A, Figure 14 Map Revision
Location: Intersection of Blackwood and State Road 50.
Proposed Change: Revise the Activity Centers General Location Map (Figure 14,
Appendix A) to show a future Activity Center at the
intersection of Blackwood and S.R. 50.
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Justification:
The proposed Comprehensive Plan Amendment is not a land use amendment and does not
require the submittal of supporting data and analysis. If approved, this amendment would
formalize a previously designated Activity Center at the intersection of Blackwood and State Road
50. In the adopted Comprehensive Plan, this intersection is identified as a future Activity Center
on page 42 of the Future Land Use Element. Land in the proximity of this intersection has started
to develop recently and it is recommended that the Activity Centers General Locations Map be
amended to show this Activity Center so that potential developers may be advised of its Activity
Center designation.
T
CPA-97-1-3
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• CPA-97-1-2
CPA-97-13
* - The areas outside of the JPA are for Planning purposes only, they do not confer any
development rights, and would require a Comprehensive Plan Amendment upon incorporation
into the City of Ocoee.
EXHIBIT B JOINT PLANNING AREA LAND USE MAP
FUTURE 0 OCOEE MUNICIPALITY BOUNDARIES II COMMERCIAL ...,, JOINT PLANNING AREA
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R 27 E R 28 E
SETTLEMENT PROPOSAL:NOT TO BE USED IN CASE NO.CI93-245 1/25/94
The Odando Sentinel,Thuaday,February 27,1997 1-3
I NOTICE OF CHANGE OF LAND USE AND
e NOTICE OF PUBLIC HEARING
BY THE OCOEE CITY COMMISSION TO
AMEND THE OCOEE COMPREHENSIVE PLAN
NOTICE IS HEREBY GIVEN, pursuant to Chapter 163. Florida Statutes, and
Section 1-8,Ocoee Land Development Code,that the City of Ocoee proposes to
adopt the following Ordinance: AN ORDINANCE OF THE CITY OF OCOEE,
FLORIDA AMENDING THE FOLLOWING ELEMENTS OF THE OCOEE COMPRE- I
HENSIVE PLAN,AS ADOPTED ON SEPTEMBER 18, 1991 BY ORDINANCE NO.
91-28,AS AMENDED: FUTURE LAND USE ELEMENT;TRAFFIC CIRCULATION
ELEMENT; FIGURE 2 (FUTURE LAND USE MAP) AND FIGURE 14 (ACTIVITY '
CENTERS GENERAL LOCATION MAP) OF APPENDIX A TO THE OCOEE
COMPREHENSIVE PLAN TO REFLECT AN ACTIVITY CENTER AT LAKE BENNET;
PROVIDING FOR SEVERABILITY; PROVIDING AN EFFECTIVE DATE. The pro-
posed Ordinance will change the use of land within the area shown on the map
in this advertisement:
City of Ocoee Location Map
i . 1
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The Ocoee City Commission will hold the second of two public hearings on the
proposed Ordinance on Tuesday, March 4, 1997 at 7:30 p.m. or as soon there-
after as practical,at the Ocoee City Commission Chambers,150 North Lakeshore
Drive,Ocoee,Florida.The Ocoee City Commission may continue the public hear-
ing to other dates,times, and places that they deem necessary. Any interested
party shell be advised that the dates,times,and places of any continuation of this
or continued public hearings shall be announced during the hearing and that no
further notices regarding these matters will be published.A copy of the proposed
amendments may be inspected by the public at the Ocoee Planning Department,
150 North Lakeshore Drive,Ocoee,Florida, between the hours of 8:00 a.m.and
5:00 p.m.,Monday through Friday,except legal holidays.
Interested parties may appear at the public hearing and be heard with respect to
the proposed Ordinance.My person wishing to appeal any decision made with
respect to any matter considered at the public hearing wilt need a record of the
proceeding,and for this purpose may need to ensure that a verbatim record of
the proceedings is made which Includes the testimony and evidence upon which
the appeal is based.Persons with disabilities needing adsiatance to participate in
any at the proceedings should contact the City Clerk's Office 48 hours In advance
of the meeting et(407)6862322.
Jan erdlan,City Ciek,Clty of Ocoee Thursday,Pablo/ay 27,1997 1
EXCERPT OF THE MINUTES OF THE OCOEE CITY COMMISSION MEETING
HELD MARCH 4, 1997.
COMPREHENSIVE PLAN AMENDMENT, SECOND READING OF ORDINANCE No. 97-09.
City Attorney Rosenthal read title only. Concurrency Analyst Resnik presented the Staff
Report and explained the changes made in response to DCA's objections.
CPA 97-1-1:
DCA's primary objections were that (1) the basis for assigning LOS should be by a road's
functional classification, not ownership, and (2) that the proposed amendment deviated from
the mandatory LOS standards for roads included in the Florida Intrastate Highway System
(FIRS).
In response to these concerns, State Road 50 as a principal arterial will remain with a LOS D.
Silver Star Road, and all other state and county facilities that are either minor arterials or
collectors, will now have a LOS E. The Florida Turnpike and the East-West Expressway,
which are classified as principal arterials but carry mandatory FDOT LOS standards because
they are FIHS facilities, will have a LOS C and LOS D, respectively. All City-maintained
roads will remain at LOS D. Based upon telephone conversation with DCA staff, these
additional changes should resolve their concerns.
CPA 97-1-2:
DCA objected to providing only a general description of boundaries for Activity Centers,
rather than specific boundaries for each Activity Center. DCA staff requested data and
analysis to show the cumulative impacts of Activity Centers on facilities and services and
stated that the City should establish specifics for each Activity Center on the maximum amount
of each land use type to be included, densities and intensities to be allowed, how development
codes may be waived, and under what conditions.
In response to these concerns, City Staff believes most of the DCA objections are moot
because the original Comprehensive Plan, which has been found to be in compliance by DCA,
already includes four (4) Activity Centers which do not have definitive boundary lines
specified anywhere in the Comprehensive Plan. The map outlining these centers, is termed
"Activity Centers General locations Map." City Staff is not proposing any new land use
changes and therefore, does not believe new data and analysis is necessary. The additional
language referring to the general boundaries of Activity Centers as being within "one-quarter
mile radius of the Activity Center's main intersection or any parts of any subdivisions or
parcels within the one-quarter mile radius as well as any logical extensions beyond those
boundaries" was meant to clarify existing text which defines an Activity Center as the "impact
zone of a major intersection." Subsequent changes were also made to the text to change the
term "Special Strategy Areas" to "Special Overlay Areas" to better clarify its intent, and the
names of the three types of Special Overlay Areas were also clarified throughout the FLUE.
After discussing the proposed text amendments in detail with DCA Staff and offering to
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Excerpt of the Ocoee City Commission Regular Meeting
March 4, 1997
amplify on some of their concerns in the ORC response, this amendment should be found to be
in compliance.
CPA 97-1-3:
This amendment updates the Future Land Use Map to include several recent annexations and
one small scale amendment. DCA had no objections to this amendment and it remains as
previously approved by the City Commission.
The public hearing was opened. As no one wished to speak, the public hearing was closed.
Commissioner Anderson, seconded by Commissioner Glass, moved to (1) approve
Ordinance No. 97-09 which ADOPTS the Comprehensive Plan Amendments upon finding said
Amendments to be consistent with the Ocoee Comprehensive Plan and the requirements of the
SPA Agreement, (2) authorize execution of Ordinance No. 97-09 by the Mayor and City Clerk,
and (3) designate the Director of Planning as the person to transmit a letter to DCA outlining
all required information as specified by Florida Statues for the adoption of a Comprehensive
Plan Amendment. Motion carried 4-0. (Commissioner Johnson was not present.)
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