HomeMy WebLinkAbout2009 04 01 Regular 600 Future Land Use Draft ElementPLANNING & ZONING BOARD /
LOCAL PLANNING AGENCY
ITEM 600
April 1, 2009
Regular Meeting
Consent
Information
Public Hearin
Re ular X
REQUEST: The Community Development Department -Planning Division requests that the Local
Planning Agency review, comment and make recommendation to the City Commission on the draft
Future Land Use Element.
PURPOSE: To give opportunity for the Board to review, discuss and provide their recommendation
to the City Commission on the draft Future Land Use Element.
APPLICABLE LAW AND PUBLIC POLICY:
Florida Statute s. 163.3177 (Required elements of the Comprehensive Plan)
Florida Statute 163.3174 (4) (related to responsibilities of the LPA regarding the comprehensive plan)
CHRONOLOGY:
The review of the elements has been according to the following schedule:
Thurs., January 29 Housing Element
Wed., February 4 Recreation & Open Space Element,
Revised Housing Element, and
Conservation Element
Tues., February 10 Revised Recreation & Open Space Element,
Revised Conservation Element, and
Intergovernmental Coordination Element
Wed., February 18 Revised Intergovernmental Coordination Element, and
Transportation Element
Wed., March 4 Revised Transportation Element,
Infrastructure Element, and
Public School Facilities Element
Tues., Marchl0 Revised Infrastructure Element,
Future Land Use Element (to be continued), and
Capital Improvements Element
BACKGROUND:
The City's Comprehensive Plan has proven to be a good guide for developing the City. Generally the
objectives have been met and the policies implemented. However, the Florida Statutes describes the
local government comprehensive planning program as a continuous and dynamic process.
April 1, 2009
Regular Agenda Item 600
An Evaluation and Appraisal Report (EAR) is required every seven years by each local government to
assess the progress of implementing the local government's comprehensive plan. [The EAR process is
designed to respond to changes in state, regional, and local policies on planning and growth
management, changing conditions and trends, to ensure effective intergovernmental coordination, and to
identify major issues regarding the community's achievement of its goals.] Florida law establishes
minimum requirements for the City's planning data to ensure predictability, certainty, and integrity in the
local growth management process. The City's Comprehensive Plan must be amended to address the
needs of the City into the next planning period.
The Evaluation and Appraisal Report (EAR) on the City of Winter Springs 2001 Comprehensive Plan
lays the groundwork for undertaking a comprehensive update of the City's Comprehensive Plan and
offers a forthright evaluation and assessment of the City's current comprehensive plan.
The EAR was developed over a 18-month period and involved numerous public workshops. During the
spring of 2007, the City identified six Major Issues as the core emphasis of the EAR [Section
163.3191(1)(c), F.S.]: These included:
• Greenway Interchange Employment District
• Elderly Housing & Medical Care
• Affordable and Work-Force Housing (Section 163.3177(6)(f), F.S. and Rule 9J-5.010 F.A.C.)
State Road 434 Corridor
Population, Housing Density and Greenspace
Redevelopment of West Side
Data was collected and analyzed on each issue as well as an assessment of how things could have been
done differently to better achieve the goals, objectives and policies of the comprehensive plan as they
related to the major issues. In addition to the analysis of the major issues section, evaluation and
assessment was provided with respect to each policy of the adopted Comprehensive Plan. The EAR
identified needed changes to improve or otherwise refine the Comprehensive Plan.
The EAR also addressed the requirements of Section 163.3191(2), Florida Statutes. These included:
population growth and changes in land area, the location of development that occurred relative to where
it was anticipated in the comprehensive plan, the extent of vacant and developable land, the financial
feasibility of implementing the comprehensive plan and in providing necessary infrastructure through the
Capital Improvements Element.
CONSIDERATIONS:
Winter Springs submitted its Adopted EAR to the Florida Department of Community Affairs (DCA) on
April 17, 2008. Subsequently, the City received notice from the DCA on June 23, 2008, that the EAR
was determined to be Sufficient pursuant to Section 163.3191(2). The DCA also commended the City's
efforts in preparation of the EAR and indicated support for many of the recommendations made in the
EAR. The EAR provides the foundation for the subsequent comprehensive plan amendments. The
statutory deadline for this Adoption of the EAR-Based Comprehensive Plan Amendments is 18 months
after the determination of Sufficiency for the EAR or no later than Dec. 14, 2009.
April 1, 2009
Regular Agenda Item 600
IMPLEMENTATION SCHEDULE:
April 6 2009 ~a 6:00 PM- Jt. LPA/CC Special Meeting for the review of the recommended draft
Apri120 2009 (a~ 6:00 PM-Jt. LPA/CC Special Meeting for the review of the recommended draft
April 2009- Revisions based on Jt. LPA/CC Meetings
Mav 6, 2009 - LPA Public Hearing on EAR-Based Amendments
Mav 26, 2009- City Commission Transmittal Public Hearing on EAR-Based Amendments
August 2009 - Receive ORC Report from DCA
Revise and produce final EAR-Based Amendments for Adoption
Nov. 23.2009- City Commission Adoption Public Hearing on EAR-Based Amendments
STAFF RECOMMENDATION: The Community Development Department -Planning
Division requests that the Local Planning Agency review, give comment and provide their
recommendation to the City Commission on the draft Future Land Use Element.
ATTACHMENTS:
NEW Draft Future Land Use Element- [Distributed Separately]
LOCAL PLANNING AGENCY RECOMMENDATION:
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City of Winter Springs
Comprehensive Plan
FUTURE LAND USE ELEMENT
Draft EAR-Based Amendments, March 2009
Prepared For:
City of Winter Springs
Community Development Department
1 126 East State Road 434
Winter Springs, Florida 32708-2799
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Prepared By:
Planning Communities, LLC
2510 Wild Tamarind Blvd.
Orlando, FL 32828
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COMPREHENSIVE PLAN
FUTURE LAND USE ELEMENT
TABLE OF CONTENTS
A. GOALS, OBJECTIVES AND POLICIES ....................................................................................5
B. INTRODUCTION .................................................................................................................26
1. General History .............................................................................................................27
2. General Character .........................................................................................................28
C. EXISTING LAND USE DATA AND INVENTORY ...................................................................31
1. Existing Land Use Categories ........................................................................................31
a. Existing Residential ..................................................................................................................... 34
b. Existing Town Center Vertical Mix ........................................................................................... 37
c. Existing Commercial .................................................................................................................... 37
d. Existing Industrial ......................................................................................................................... 38
39
e. Existing Public~Semi-Public .......................................................................................................
f. Existing Recreation and Open Space ..................................................................................... 39
39
g. Existing Resource Protection~Drainage ...................................................................................
h. Existing Conservation .................................................................................................................. 39
i. Vacant and Vacant Constrained ..............................................................................................40
j. Historic Resources ........................................................................................................................40
2. S.R. 434 Corridor Vision Plan ....................................................................................... 42
a. Redevelopment Area Overlay District ....................................................................................42
b. New Development Area Overlay District ...............................................................................42
3. Natural Resources .........................................................................................................43
a. Climate ..........................................................................................................................................43
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COMPREHENSIVE PLAN
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b. Water Bodies ..............................................................................................................................43
c. Wetlands ......................................................................................................................................45
d. Flood Zones ..................................................................................................................................45
e. Topography .................................................................................................................................45
f. Soils ................................................................................................................................................45
g. Minerals ........................................................................................................................................51
D. LAND USE ANALYSIS .........................................................................................................51
1. Unincorporated Enclaves/Future Annexations ..............................................................51
2. Population Projections ...................................................................................................51
3. Analysis of Public Facilities Affecting Development ....................................................52
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a. Potable Water ............................................................................ ................................................52
b. Wellheads .................................................................................... ................................................52
c. Sanitary Sewer ............................................................................ ................................................54
d. Stormwater/Drainage ............................................................... ................................................54
e. Solid Waste ................................................................................. ................................................54
f. Transportation .............................................................................. ................................................55
4. Analysis of Natural Conditions Affecting Development ............................................... 55
a. Natural Groundwater Aquifer Recharge ...............................................................................55
b. Flood Prone Areas ......................................................................................................................56
5. Vacant Land Analysis ...................................................................................................56
6. Future Land Use and ProjeNed Land Use Needs .......................................................... 57
a. Residential Future Land Use Categories .................................................................................57
b. Commercial Future Land Use ....................................................................................................60
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COMPREHENSIVE PLAN
FUTURE LAND USE ELEMENT
c. Mixed Use Future Land Use ......................................................................................................61
d. Town Center Future Land Use ...................................................................................................62
e. Urban Central Business District .................................................................................................63
f. Greeneway Interchange District (GreenWAY) Future Land Use .......................................63
g. Industrial Future Land Use .........................................................................................................6b
h. Public/Semi-Public Future Land Use ........................................................................................66
i. Recreation and Open Space Future Land Use ......................................................................67
j. Conservation Future Land Use
68
k. Conservation Overlay ................................................................................................................68
7. Redevelopment .............................................................................................................68
8. Inconsistent Land Uses ................................................................................................. 69
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COMPREHENSIVE PLAN FUTURE LAND USE ELEMENT
LIST OF TABLES
Table I - 1: Existing Land Use Table (2009) ............................................................................32
Table I - 2: Future Land Use Table ........................................ERROR! BOOKMARK NOT DEFINED.
LIST OF MAPS
Map 1- 1: Future Land Use Map
Map I- 2: General Location Map .............................................................................................. 72
Map 1- 3: Town Center Master Plan ......................................................................................... 72
Map 1- 4: Existing Land Uses Map ........................................................................................... 72
Map 1- 3: Vacant and Undeveloped Properties Map ............................................................... 72
Map I- 6: Wellhead Protection Areas
Map I-7: Major Water Features 72
Map I- 8: Wetlands .................................................................................................................. 72
Map 1-9: Wetland Vegetation Classifications ........................................................................... 72
Map I- 10: 100-Year Flood Plain ............................................................................................. 72
Map 1- 11: Soil Classifications ................................................................................................. 72
Map I- 12: Soil Suitability ........................................................................................................ 72
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COMPREHENSIVE PLAN FUTURE LAND USE ELEMENT
CHAPTER 1
FUTURE LAND USE ELEMENT
A. GOAtS, OBJECTIVES AND POLICIES
Quality of Life. To ensure that the character, magnitude, and location of all land uses provides a
system for orderly growth and development (as defined in sections 163.3221 and 380.04,
Florida Statutes) that achieves a balanced, natural, energy efficient, and economic environment,
and enhances the quality of fife of all residents.
Objective 1.1: Land Use Categories and Future Land Use Map. The City shall maintain regulations
for land use categories and a Future Land Use Map (Map I-1) to ensure the coordination of future
land uses with existing and adjacent land uses.
Policy 1.1.1: Land Use Categories. Identify appropriate locations for the following
land use categories:
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Land Use Categories Maximum Density/Intensity
Rural Residential 1.0 dwelling unit gross acre ~ _____ _~`^^
Low Density Residential __ 3.5 dwelling units/gross acre
Medium Density Residential 9.0 dwelling units gross acre _`~_ _
High Density Residential _ 21.0 dwelling units gross acre
Commercial _
~ _ _ __
0.5 floor area ratio
~' T ~
Mixed Use_ _
^~ _
_
12.0 dwe_Iling units per gross acre or l.0 floor area ratio
Town Center District 36.0 dwelling units per gross acre or 2.0 floor area ratio
Greeneway Interchange
District
_. -.. .______...___.y_..~__
_ 1.0 floor area ratio
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_
Industrial_ _ __
_ ~ ` ~_~_.___ .____..___-- ____.._.~_..__.______~_._~..___
0.5 floor area ratio
Public~Semi-Public
! __ ___ __ _ _
_
0.5 floor area ratio
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Recreation
and Open
S ace
_
~ _
_ _
0.25 floor area ratio ~` _ '~
Conservation
_ _ _
Development not Permitted
~
~ ~ ^
Conservation Overlay _
__
Not Applicable ~~
Policy 1.1.2: Density~lntensity. Adopt maximum densities and intensities for each
land use category which encourage economic development while
protecting the natural environment as indicated in the above table.
Policy 1.1.3: Zoning Districts. Adopt a zoning matrix which establishes zoning
districts that correspond to specific land use categories and defines
allowable densities and intensities in each zoning district.
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Policy 1.1.4: Innovative Design. Encourage energy-efficient and innovative land use
patterns (such as, multimodal horizontally and vertically integrated
mixed use development, cluster development, low impact development,
LEED, Green Globes, Florida Green Building Coalition standards, and
other such environmentally-friendly development practices).
Policy 1.1.5: Housing Diversify. Include on the Future Land Use Map, an adequate
diversity of lands for residential uses to assist the private sector in
providing a diversity of housing unit types to meet the future demand
for residential densities identified in the Housing Element.
Policy 1.1.6: Accessory Dwelling Units. Allow on a case by case basis, as a
conditional use in single family dwelling zoning districts, Accessory
Dwelling Units which adhere to strict design guidelines. (Cross Reference:
See Housing Element, Policy 1.4.6)
Policy 1.1.7: Recreation and Open Space. Restrict impervious area on lands
designated as Recreation and Open Space to a maximum of 25%, to
ensure their protection, proper development and future public use and
benefit.
Policy 1.1.8: Conservation Overlay. Consider land that is designated with a
Conservation Overlay as potentially containing wildlife habitat areas,
hydric soils/wetlands, special vegetative communities, public water well
radii of 500-feet, 100-year flood plain areas, and other areas subject
to environmental or topographic constraints. Condition approval of
Conservation Overlay areas on the following:
• Determine the suitability of development prior to issuance of
any development approval.
• Do not consider the Conservation Overlay area as the exact
boundary of the conservation area, but rather, an indicator of a
potential conservation area. Require the exact boundary to be
determined by a qualified professional at the expense of the
developer.
• Do not consider the Conservation Overlay area as all inclusive.
Consider other areas that meet the definition of conservation
areas but that do not fall within the Conservation Overlay
boundary, as being subject to the same scrutiny.
• Subject development approval to the findings of an
Environmental Impact Study. Protect natural resources
discovered as a result of the required Environmental Impact
Study. Require the Environmental Impact Study to be prepared
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by a qualified professional, who will analyze the natural
functions of eco-systems and connectivity of resource corridors.
Require a conservation easement and subsequent Conservation
land use designation to protect the functions of natural
resources. Allow mitigation on a case by case basis through the
appropriate reviewing agencies.
• Consider an area within the Conservation Overlay area as
developable if all mitigation requirements have been met, and
apply the underlying land use identified on the Future Land Use
Map.
• Allow a change from Conservation Overlay to a Conservation
land use designation without State approval if the area is
already shown as Conservation Overlay on the Future Land Use
Map.
• Encourage any property in a Conservation Overlay area to
undergo the planned unit development procedure which
includes site specific plan approval and the clustering of density
to protect these areas.
Objective 1.2: Natural Resource Protection. The City shall maintain land development
regulations that protect natural resources (such as, groundwater, surface water, flood plain,
wildlife habitat, wetlands and other vegetative communities) from the impact of development.
Additionally, the City will limit development in areas that have inadequate soils, topography or
other constraints, to protect public health and welfare.
Policy 1.2.1: Resource Protection. Explore the feasibility of a resource protection
ordinance, which would provide incentives for developers to minimize
impervious surfaces. (Cross Reference: See Infrastructure Element, Policy 5.1.2 and
Conservation Element, Policy 1.2.3)
Policy 1.2.2: Potable Water. Do not issue development orders unless it can be
determined that adequate potable water supplies and facilities are
available. (Cross Reference: See Infrastructure Element, Policy 2.3.3)
Policy 1.2.3: Septic Tanks. Discourage the use of septic tanks within the City, to
prevent potential soil and groundwater contamination and coordinate
with the County to limit septic tank permits. Do not permit septic tanks
within 75-feet of water bodies, within the 100-year flood plain, or
within jurisdictional wetlands.
Policy 1.2.4: Sewer. Require all previously developed properties to connect to
central sewer when it becomes available within 50-feet of the property
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and their s stem has been determined to be detrimental to the health,
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safety, and welfare of the general public. Require residential and
commercial development and redevelopment, to connect to or extend
the central sewer system to provide service to their development,
except for single family residential that includes only one or two lots.
(Cross Reference: See Infrastructure Element, Policy 1.4.1)
Policy 1.2.5: Septic/Soils. Complete a study by 2012 that identifies all existing
development that is utilizing septic systems on unsuitable soils. If
available, pursue grant funding to retrofit these developments and
connect them to the central system. (Cross Reference: See Infrastructure
Element, Policy 1.4.2)
Policy 1.2.6: Wellheads. Prohibit new development with 500-feet of a wellhead,
consistent with the Florida Department of Environmental Protection
(FDEP) Standards.
Policy 1.2.7: Flood Plain. Maintain a flood plain management ordinance which
includes the development standards required for participation in the
National Flood Insurance Program and require that new construction or
substantial improvement of any structure have the lowest floor elevated
to eighteen (18) inches above the established 100-year flood
elevation. (Cross Reference: See Infrastructure Element, Policy 4.3.2)
Policy 1.2.8: stormwater. Maintain stormwater management requirements in the
Code of Ordinances which provide specific standards for the design of
on-site stormwater systems, as well as strategies and measures to
minimize untreated runoff into Lake Jesup and other natural water
bodies.
Policy 1.2.9: stormwater Master Plan. Do not issue development orders unless the
proposed .development is determined to be in compliance with the
City's stormwater Master Plan.
Policy 1.2.10: Environmental Study. Utilize the Conservation Overlay map, as well as,
the natural vegetative map, FEMA, USGS Soil Conservation Service
and the Hydric Soils of Florida Handbook to identify properties which
have potential development constraints based upon hydric soils,
wetland vegetation, flood hazard potential or other topographic
constraints, and, if necessary, require an Environmental Impact Study.
Policy 1.2.11: Conservation Easements. Place areas determined to need protection
through the Environmental Impact Study process into a permanent
conservation easement prior to final development order approval.
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Policy 1.2.12: Lake Buffers~Fill. Require a minimum upland lake buffer of fifty (50)
feet. Do not allow land disturbing activities within the buffer except
for the non-mechanized removal of exotic invasive plant species.
Prohibit permanent structures within the lake buffer, except for limited
piers and decks. Retain existing trees and native vegetation to the
greatest extent possible. Prohibit fill from being placed in lakes,
except as permitted by applicable state, regional and federal
agencies.
Policy 1.2.13: Wetlands. Delineate wetlands on the site plan according to FDEP,
SJRWMD, or USACOE definitions, whichever standard is more
restrictive. Wetlands shall mean those areas established as jurisdiction
by the above agencies.
Policy 1.2.14: Wetland Buffers. Require wetland buffers as stipulated in the
Conservation Element of the City's Comprehensive Plan.
Objective 1.3: Concurrency. The City shall ensure that future development is provided essential
services and facilities at acceptable standards by incorporating the following policies into the site
plan review process and the City's concurrency management system.
Policy 1.3.1: Level of Service (LOS) Review. Review all development and
redevelopment proposals to determine their specific impacts on current
LOS standards.
Policy 1.3.2: Determination. Deny a development order if a proposed development
will result in a degradation of the adopted LOS, unless it can be
demonstrated that sufficient improvements will be in place concurrent
with the impacts of such development to maintain the adopted minimum
LOS standard.
Policy 1.3.3: Improvements. Continue to seek fiscal resources to make improvements
necessary to accommodate growth and infill development while
maintaining services and facilities at adopted standards.
Policy 1.3.4: Future Land Use Map Amendments. Support proposed Future Land Use
Map Amendments with data and analysis demonstrating that adequate
water supplies and associated public facilities will be available to meet
the projected growth demands. (Cross Reference: See Capital Improvement
Element, Objective 1.8 and Policies 1.8.1, 1.8.2 and 1.8.3)
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Objective 1.4: Discourage Urban Sprawl and Encourage Redevelopment. The City will limit the
proliferation of urban sprawl and encourage redevelopment and revitalization of blighted areas.
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Policy 1.4.2: Higher Density Infill. Encourage infill and higher density and intensity
development within the Town Center and the U.S. 17-92 CRA Corridor.
Minimize adverse impacts to adjacent established residential
neighborhoods through site layout, orientation of buildings, and a
transition of densities. (Cross Reference: See Housing Element, Policy 1.1.8)
Policy 1.4.3: Public Services and Facilities. Work to ensure the availability of public
services and facilities to accommodate development in the Town Center
and Greeneway Interchange District.
Policy 1.4.4: Visioning Workshop. Hold a visioning workshop to discuss specific issues
that may impede infill and redevelopment activities consistent with the
land uses and densities indicated in this plan, in situations that will not
jeopardize public health, safety or welfare.
Policy 1.4.5: S.R. 434 Overlay. Implement the S.R. 434 overlay corridor design
standards to encourage infill development that is appropriate for the
character of the neighborhoods adjacent to this corridor. Allow a
vertical mix of uses to promote alive-work environment.
Policy 1.4.6: S.R. 434 Crosstown Bus Route. Implement as feasible, bicycle and
pedestrian connections to the new S.R. 434 Crosstown bus route.
Policy 1.4.7: Partnerships for Housing Rehabilitation. Continue to partner with
agencies which work to rehabilitate deteriorated housing and
neighborhoods.
Policy 1.4.8: Deteriorated Areas. Target areas of blight or otherwise deteriorated
areas for special consideration through a redevelopment plan and
pursue available federal, state, county and local funds for
redevelopment.
Objective 1.5: Land Use Compatibility. Future development must be consistent with the adopted
Future Land Use Map and existing incompatible uses shall follow the City Code of Ordinance that
strictly prohibits the expansion of non-conforming uses and shall be eliminated, when feasible.
Policy 1.5.1: Inconsistencies. Do not approve proposed land use amendments which
are inconsistent with the character of the community or inconsistent with
adjacent future land uses.
Policy 1.5.2: Non-Conforming Structures. Continue to prohibit the repair or
rehabilitation of a non-conforming structure that is abandoned or
damaged (even if by natural causes) beyond fifty (50) percent of its
appraised value and require demolition of the structure. Allow
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redevelopment of the property only if it is consistent with the Future
Land Use Map.
Policy 1.5.3: Redevelopment~lnfill Development. Identify acceptable locations,
priorities and implementation strategies for potential infill development
and redevelopment. Address residential, commercial and live-work or
mixed use opportunities. Follow-up these efforts with any needed
amendments to the Comprehensive Plan, Future Land Use Map, and~or
Code of Ordinances as well as enhancements to the vacant parcel map
and database illustrating infill development and redevelopment
opportunities. Consider providing incentives for infill development and
redevelopment that support the City's targeted program priorities.
Policy 1.5.4: Conversions. Support the transition or conversion of older residential
homes located along arterial roadways, to a five-work or commercial
use, by reducing the required development standards when
appropriate, while maintaining compatibility and protecting adjacent
neighborhood uses.
Policy 1.5.5: Buffers. Buffer residential areas from intensive commercial and
industrial land uses. Locate less intensive transitional uses in between,
or buffer with berms, trees, or other methods, as deemed appropriate
by the City.
Policy 1.5.6: Landscape Buffers. Establish a landscape ordinance that further defines
requirements for adequate buffering between incompatible uses.
Policy 1.5.7: Compatibility. Maintain site design requirements and subdivision
regulations in the Code of Ordinances which adequately address the
impacts of new development on adjacent properties in all land use
categories and zoning districts and which encourage property owners
to make property upgrades which enhance and increase property
values.
Policy 1.5.8: Adverse Uses. Permit lands designated "Industrial" on the Future Land
Use Map to also serve as an area to locate authorized land uses and
activities which could have adverse secondary effects (e.g. increased
crime; neighborhood deterioration and blight; property devaluation;
economic deterioration; health risks; and other adverse effects) on
residential areas, religious institutions, schools, parks, day care centers,
and other public institutions located within the City.
Policy 1.5.9: Adult Entertainment. Limit adult entertainment establishments and
sexually oriented businesses shall be strictly limited to lands designated
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"Industrial" on the Future Land Use Map. Cooperatively adopt joint
planning agreements with Seminole County and other neighboring cities
to jointly coordinate the location of adult entertainment establishments
and sexually oriented businesses, as needed.
Objective 1.6: Transportation/Land Use Compatibility. The City will ensure that population
densities, housing types, employment patterns, and land uses are consistent with the City's
transportation network.
Policy 1.6.1: Cross Access Easements. Require shared driveways and cross access
easements between adjacent properties where feasible to support
efficiency in travel and to reduce demand on arterial and collector streets.
Require development projects over ten acres to have more than one point
of access.
Polity 1.6.2: Transportation Improvements. Provide proposed transportation
improvements consistent with the land use patterns on the Future Land
Use Map.
Policy 1.6.3: Transportation LOS. Prohibit proposed land use amendments which are
anticipated to reduce the LOS for transportation facilities below the
standard, unless the development contributes to the City's multimodal
system and addresses the deficiencies caused by the project. Require
such contribution to be approved by the City Commission.
Policy 1.6.4: High Traffic Count Uses. Encourage land uses that generate high traffic
counts to locate adjacent to arterial roads and mass transit systems.
Policy 1.6.5: On-Site Traffic Flow. Require development to provide safe and
convenient on-site motorized and non-motorized traffic flow, adequate
pedestrian facilities and connections, and sufficient parking for both
motorized and non-motorized vehicles.
Objective 1.7: Adjacent Jurisdictions. The City shall promote compatibility of adjacent land uses
with Seminole County and the neighboring cities of Casselberry, Longwood and Oviedo.
Policy 1.7.1: Adjacent Land Uses. Consider existing and proposed land uses in
adjacent jurisdictions when reviewing proposed land use amendments.
Policy 1.7.2: Intergovernmental Coordination. Continue intergovernmental
coordination through associated technical committees with neighboring
jurisdictions, such as METROPLAN ORLANDO, the Council of Local
Governments (CALNO), SeminoleWAY initiative and the Planning
Technical Advisory Committee (PTAC).
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'v 1.8: Annexation. The Cit shall ursue a olic of annexation which will provide for
Oblect~ e y p P Y
the most efficient use of public facilities and services, eliminate areas of jurisdictional problems,
and provide for sound growth and development of the City and surrounding area.
Policy 1.8.1: Procedures for Joint Action. Identify and establish procedures for joint
action regarding future joint planning areas, future annexations and
compatible County and City land uses.
Policy 1.8.2: Enclaves. Annex all enclaves, where feasible, in order to reduce land
use conflicts and provide efficient public service.
Policy 1.8.3: Condition for Connection to City Utilities. Require new development
within the County in areas that are contiguous to the City, to be
annexed into the City and to be developed to City standards as a
condition for connection to City utilities.
Policy 1.8.4: Annexation Boundary East of Deleon Street. Do not process any
voluntary annexation petitions received from property owners, nor
initiate any involuntary annexation procedure, involving any real
property that is located east of an imaginary straight line which
commences on the southern boundary of the shores of Lake Jesup and
runs southward along the easternmost boundary of the Deleon Street
right-of-way and which terminates on the northernmost boundary of the
City of Oviedo.
Objective 1.9: Historic and Archeological Sites. The City shall identify, designate and protect
historically significant housing and significant archeological sites.
Policy 1.9.1: Protection of Historic Sites. Protect and preserve the City's historic sites
and properties, buildings, artifacts, and objects of antiquity which have
scientific or historic value, or are of interest to the public.
Policy 1.9.2: Development Restrictions. Prohibit development which damages any site
or building determined to be either historically or archaeologically
significant, as designated on the register of historically significant
property maintained by the State of Florida.
Policy 1.9.3: Historic and Archeological Study. Prepare a study of historic and
archeological sites. Maintain an electronic database that identifies the
location of potential archeological and historic sites.
Policy 1.9.4: Restrictive Standards. Establish restrictive standards for historic
preservation in the Code of Ordinances to ensure the protection of
historically significant cultural sites and historic structures.
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Polic 1.9.5: City-Owned Property. Do not allow any loss of significant
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archaeological, paleontological, and historic resources on City-owned
property.
Objective 1.10: Public Utilities. The City will maintain regulations and procedures in the
Code of Ordinances which will require provision of land for utility facilities necessary to support
development and will limit land development activities when such land for utility facilities is not
available, as specified in the following policies:
Policy 1.10.1: Public Utility System Land Requirements. Review proposed development
in relation to existing and projected utility systems and any land needs
of these systems, such as water and sewer plants, stormwater
management, transmission corridors for electric and other utilities,
easements for maintenance, and, other requirements.
Policy 1.10.2: Preservation of Public Utility System Lands. Do not issue development
orders unless it can be demonstrated that the land required by utility
systems serving the City will be preserved.
Objective 1.11: Public Schools. The City shall implement standards for the siting of public
schools to increase the quality of life and local educational opportunities for its citizens.
Policy 1.11.1: Future Land Use and Zoning Categories. Allow public schools in all
future land use categories except Conservation and Industrial. List
public schools in the Code of Ordinances Zoning Chapter as uses
allowed in all zoning districts except the R-T Mobile Home Park and the
-1 Light Industrial Zoning Districts. [Cross Reference: See Public School Facilities
Element, Policy 1.6.1 ]
Policy 1.11.2: Adjacency Requirements. Do not locate new school sites adjacent to any
noxious industrial uses or other property from which noise, vibration,
odors, dust, toxic materials, traffic conditions or other disturbances that
would have a negative impact. (Cross Reference: See Public School Facilities
Element, Policy 1.6.1)
Policy 1.11.3: Protection of Adjoining Uses. Minimize detrimental impacts from new
schools on residential neighborhoods, nursing homes and similar uses
through proper site location, configuration, design layout, access,
parking, traffic controls and buffers.
Policy 1.11.4: Facility Size Requirements. Satisfy the minimum standards established
by the School Board for size of new school facilities and land area,
whenever possible. (Cross Reference: See Public School Facilities Element, Policy
1.3.2)
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Objective 2.1: Location. The Town Center should be generally centered around the intersection
of S.R. 434 and Tuskawilla Road, as depicted on the City's Future Land Use Map. Existing public
facilities such as the City Hall, Winter Springs High School, Central Winds Community Park, and
the U. S. Post Office are included within the Town Center designation.
Policy 2.1.1: Future Land Use Map Designation. Revise the Future Land Use Map, as
needed from time to time, to designate land "Town Center" consistent
with the Objective.
Policy 2.1.2: Promote and Protect. Maintain a leadership position to protect the
integrity of the Town Center and promote public and private
investment and growth therein.
Policy 2.1.3: Future Roads and Traffic Patterns. Adopt appropriate transportation
maps to identify future roads and traffic patterns related to the Town
Center that assure best routes through land while attempting to
maximize development potential and opportunities consistent with the
Town Center Goal. Determine the final location of future Town Center
roads during the development process.
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Policy 2.1.4: Public~Private Partnerships. Enter into public private partnerships, as
needed from time to time, with property owners or developers to
develop the Town Center.
Policy 2.1.5: Public Money as a Catalyst. Encourage private investment within the
Town Center by spending public money as a catalyst to the extent
financial resources are available. Coordinate as appropriate, with
private development to undertake capital improvements for public
infrastructure (e.g. sewer, water, roads, parks, stormwater) to enhance
or assist private development to achieve the Town Center Goal.
Policy 2.1.6: Private Investment and Economic Incentives. Encourage private
investment in the Town Center by enacting policies to provide economic
incentives to private developers building within the Town Center,
provided such development is consistent with the Town Center Goal.
Consider to the extent allowed by law, incentives such as providing
impact fees credits, subsidizing loans, reserving infrastructure capacity,
improving right-of-ways, providing public infrastructure, and~or
streamlining permit processing.
Policy 2.1.7: Development Review Committee. Require all proposed developments
within the Town Center to be subject to review by the Development
Review Committee (DRC), which shall have the authority, as established
by the City Commission, to approve all aspects of site planning and
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Policy 1.11.5: Proximity to Residential Development. Locate schools in proximity to
existing or anticipated concentrations of residential development with
the exception for high schools and specialized schools, which are
suitable for other locations due to their special characteristics. (Cross
Reference: See Public School Facilities Element, Policy 1.6.1)
Policy 1.11.6: Sensitive Lands. Require new school buildings to be located away from
flood plain, wetlands, and other environmentally sensitive lands.
Protect historic or archaeological resources from adverse impact by
education facilities.
Policy 1.11.7: Concurrent Implementation. Require public utilities, as well as police
and fire protection, to be available concurrently with the construction of
new school sites.
Policy 1.11.8: Collector~Arterial Road Access. Require new school sites to have
frontage on or direct access to a collector or arterial road and to have
suitable ingress and egress for pedestrians, bicycles, cars, buses,
service vehicles, and emergency vehicles.
Polity 1.11.9: Pre-Development Coordination. Coordinate during pre-development
program planning and school site selection activities with the School
Board, to collocate public facilities, such as parks, libraries, and
community centers, with schools.
Policy 1.11.10: Emergency Shelters. Encourage the School Board to construct portions of
new schools to serve as emergency shelters in case of natural disasters.
Policy 1.11.11: Consistency with Code and Interlocal Agreements. Require public schools
to develop consistent with the 2007 Interlocal Agreement for Public
School Facility Planning and School Concurrency As Amended January
2008, the City's Comprehensive Plan, and the City's Code of
Ordinances.
GOAL 2: Town Center. The City seeks to create a Town Center based upon traditional design
standards for development that will become the identifying focus of the City's downtown. The
primary purpose of the Town Center shall be to create a vibrant, aesthetic, compact, multimodal,
diverse, mixed use (including horizontal and vertical integration of uses) neo-traditional urban
environment, designed on a pedestrian scale and with a pedestrian orientation. The Town Center
is to be a place where people can reside in a mix of single and multiple family dwellings, work,
gather to shop, relax, recreate, be entertained, attend community events, and enjoy the natural
beauty of lands located in the Town Center. The Town Center should be created through public
and private investment and development.
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exterior architecture implications, traffic impacts, and any other site-
specific matters related to development.
Objective 2.2: Neo-traditional. Promote and enhance the development of the Town Center by
allowing a mixed use higher density/intensity neo-traditional urban pattern.
Policy 2.2.1: Neo-Traditional Characteristics. Encourage a mixed use higher
density/intensity neo-traditional Town Center, utilizing, to the extent
practical, the fundamentals and urban design concepts in the Town
Center Master Plan:
• Urban and high density
• Walkable community
• Predictability in design/flexibility inland uses.
• Visibly different section of S.R. 434
• Important sites for special public places
• "Green network" of parks and preserved open spaces
• Connected network of streets and blocks
• Special public spaces of defined character
• Special sites for civic buildings
• Pedestrian sized blocks
• Non-gated developments
Policy 2.2.2: Variety of Places. Promote and permit a variety of places to gather,
shop, relax, recreate and enjoy the natural beauty of the Town Center.
Choose sites for public spaces because of their uniqueness or existing
physical features.
Policy 2.2.3: Network of Public Green Spaces. Promote and develop a network of
public green spaces such as parks, squares, preserves, and open spaces
that form the framework for the Town Center, and in doing so, promote
and develop connectivity of natural features for habitat, continuity and
sustainability, scenic vistas, and trail systems. [Open space is defined as
"undeveloped lands suitable for passive recreation or conservation".
(Cross Reference: See Recreation and Open Space Element, Policy 1.1.1)]
Designate lands for both passive and active parks.
Policy 2.2.4: Mixed Uses. Permit a variety of mixed uses consistent, compatible, and
in harmony with the Town Center Goal, including single family
residential, multiple family residential, commercial retail and services,
public services and buildings, parks, and schools, through the enactment
of creative and flexible land development regulations.
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Policy 2.2.5: Wetlands. Utilize wetlands as conservation preserve and open space
areas. Connect these to the extent feasible, to promote the natural
drainage and ecological viability of the Town Center and to further
uphold the City's designation as a "Tree City U.S.A." Designate
jurisdictional wetlands located within the Town Center as Conservation
on the Future land Use Map and require that these lands be subject to
the Goals, Objectives and Policies of the Conservation Element.
Policy 2.2.6: Residential Density. Encourage high density residential development in
the Town Center not exceeding thirty-six (36) units per gross acre and
support the desired commercial activity and urban character desired
for the Town Center by requiring a minimum average density of 7 units
per acre for any residential development. (Cross Reference: See Housing
Element, Policy 1.1.14)
Policy 2.2.7: Accessory Dwelling Units. Encourage developers of single family
detached units in the Town Center, to include a minimum of 20 percent
of the residential units with accessory dwelling units (such as garage
apartments). The use of accessory dwelling units is encouraged and
may be utilized in meeting the average density figure required in
Policy 2.2.6. (Cross Reference: See Housing Element, Policy 1.3.10)
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Policy 2.2.8: Intensity and Building Height. Encourage higher intensity development in
the Town Center which does not exceed a floor area ratio (FAR) of two
(2.0) and six (6) stories in height.
Policy 2.2.9: Mix of Uses Defined. Consider the mix of land uses in the Town Center,
the same as identified in Future Land Use Element, Policy 5.2.1.
GOAL 3: Greeneway Interchange District. The City hereby creates a Greeneway
Interchange District (GreenWAY) land use category to provide an employment center for target
industries with high quality, higher income jobs and an increased tax base for the City.
Objective 3.1: Location. The GreenWAY shall be located in proximity to S.R. 417 and the
interchange area on S.R. 434, as depicted on the City's Future Land Use Map. The GreenWAY is
located within the "target area" identified by Seminole County in 2007 as "SeminoleWAY", which
runs north from S.R. 426 in the City of Oviedo to Interstate 4 in the City of Sanford, following the
S.R. 417 corridor.
Policy 3.1.1: Future Land Use Map Designation. Revise the Future Land Use Map, as
appropriate from time to time, to designate land "Greeneway
Interchange District" (GreenWAY) consistent with this Objective.
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Policy 3.1.2: Future Roads and Traffic Patterns. Adopt appropriate transportation
maps to identify future roads and traffic patterns related to the
GreenWAY that assure best routes through and safe and convenient
access to land while attempting to maximize development potential
and opportunities consistent with Goal 3. Determine the final location
of future roads within the GreenWAY and adjacent area during the
development process in accordance with the Transportation Element.
Policy 3.1.3: Connectivity. Require pedestrian, bicycle and vehicular connectivity
both internally and externally to adjoining developable properties
(including public trail linkages). (Cross Reference: See Recreation and Open
• Space Element, Policy 1.6.4)
•
Objective 3.2: Land Uses. The intent and purpose of the GreenWAY is to attract target
industries which provide higher paying jobs, which complement and do not compete with the Town
Center, and which will increase the City's tax base.
Policy 3.2.1: Target Industries. Limit land uses within the GreenWAY to target
industry uses including: technical and research services, financial
information services, life sciences, digital media, international trade,
sports associated industries, hotels and lodging, conference centers,
long stay tourism. Allow other "basic" businesses and industries with
high annual average wages provided the use complies with this
Objective. Allow incidental uses supportive of these industries
(including heliport) to be incorporated into these target industry
buildings, but not as a separate facility.
Policy 3.2.2: Residential Use Limitations. Prohibit residential except as a conditional
use, incidental to other GreenWAY uses set forth in Policy 3.2.1 and
require residential uses to be vertically integrated into mixed use
structures. Do not permit residential uses until such time as at least thirty
percent (30%) of the developable GreenWAY land has been
developed with the uses set forth in Policy 3.2.1.
Policy 3.2.3: Sensitive Lands. Require preservation of ecologically sensitive open
spaces in the GreenWAY and promote connectivity of these natural
features for habitat continuity and sustainability. Require a network of
public plazas with interconnected sidewalks to promote an urban
pedestrian environment. Calculate FAR based on total gross acreage,
including both ecologically sensitive areas and developed acreage.
[Cross Reference: See Recreation and Open Space Element, Policy 1.1.9]
Policy 3.2.4: Intensity and Building Height. Entourage higher intensity development in
the GreenWAY by requiring buildings to include at least two (2) floors
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of occupiable space and allowing a FAR up to 1.0. Restrict building
heights to four (4) stories, except where a smaller building footprint is
justified in order to preserve ecologically sensitive open spaces.
Consider the maximum building height in these cases to be six (6)
stories.
Policy 3.2.5: Trail Linkages. Require public trail linkages through the GreenWAY
and require bicycle facilities (such as bike racks and lockers) to support
public access via alternative means.
Policy 3.2.6: Diversify in Detailing and Style. Require development to include
diversity in detailing and style while maintaining aesthetic harmony.
Objective 3.3: Private/Pu61ic Investment. The City shall encourage and promote target industries
to invest and locate on land designated GreenWAY.
Policy 3.3.1: Public Money as a Catalyst. Spend public money as a catalyst to
encourage private investment within the GreenWAY, to the extent
financial resources are available. Undertake capital improvements for
public infrastructure in conjunction with private development (e.g.
sewer, water, roads, parks, stormwater) to enhance or assist private
development in achieving the GreenWAY Goal.
•
Policy 3.3.2: Seminole WAY Collaboration. Pursue opportunities to collaborate on the
regional SeminoleWAY initiative between Seminole County, the cities of
Oviedo, Sanford, and Winter Springs, the Florida Turnpike Enterprise,
and the Orlando Sanford International Airport, for purposes of
economic development and job growth initiative. (Cross Reference: See
Intergovernmental Coordination Element, Policy 1.2.4)
Policy 3.3.3: Private Investment and Economic Incentives. Encourage private
investment in the GreenWAY by enacting policies, to the extent
allowed by law, to provide economic or streamline processing
incentives to private developers utilizing green technology standards
(such as LEED) within the GreenWAY, provided such development is
consistent with the GreenWAY Goals, Objectives and Policies.
Policy 3.3.4: Town Center Linkages. Support public private investment in
transportation linkages between the GreenWAY and the Town Center
(such as a local transit circulator, water taxi, trail connection, or other
innovative solutions.)
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Objective 3.4: Compatibility of Uses. Through the adoption of land development regulations and
the development review process, the City shall require that the land uses within the GreenWAY
be compatible.
Policy 3.4.1: Master Development Plan. Require a Master Development Plan which
considers the entire GreenWAY and surrounding area, to ensure
compatibility of land uses and compliance with Goal 3.
Policy 3.4.2: Development. Require tracts of land to be developed as a whole, to
provide continuity among the various land uses and to create a
compact and walkable workplace.
Policy 3.4.3: Transition to Adjacent Uses. Consider transitional uses and stepped
down building heights to maximize views of Lake Jesup and to protect
adjacent, existing lower density uses.
GOAL 4: Mixed Use. The City seeks to promote a Mixed Use category, which provides for a
variety of land uses and intensities within a development site to preserve conservation areas,
reduce public investment in service provision, encourage flexible and creative site design, and
provide public amenities with area wide benefits.
Objective 4.1: Location. The Mixed Use category shall be located proximate to major
transportation corridors as depicted on the City's Future Land Use Map.
Policy 4.1.1: Future Land Use Map Designation. Revise the Future Land Use Map,
from time to time, to designate land "Mixed Use" consistent with this
Objective.
Objective 4.2: General Uses and Infensities. Through the enactment of creative and flexible land
development regulations and master planning design standards, permit a variety of mixed uses
consistent, compatible and in harmony with the Mixed Use Goal, including low, medium and high
density residential; commercial (retail and office); light industrial; educational facilities;
recreational facilities; and compatible public facilities.
Policy 4.2.1: Percentage of Various Uses. Require as part of the master planning
process, an appropriate set of uses and distribution of uses to be
established unique to each development that will allow no more than
75 percent of any one type of land use to dominate the Mixed Use
category.
Policy 4.2.2: Minimum Acreage. Require a minimum of ten (10) acres for
development in the Mixed Use category.
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Policy 4.2.3: Vertical Integration. Promote vertical integration of uses, as
Appropriate.
Policy 4.2.4: Master Plan and Development Agreement. Require a Master Plan,
Development Agreement, and Planned Unit Development Zoning unique
to each development, to ensure that tracts of land are developed as a
whole throughout the Mixed Use category, to provide continuity among
the various land uses, and to create a compact and walkable
environment.
Policy 4.2.5: Transition to Adjacent Uses. Require transitional uses and stepped down
building heights to protect adjacent lower intensity and density uses.
GOAL 5: Urban Central Business District. The City shall create an Urban Central Business District
(UCBD) in order to promote high intensity, high density development in its urban core.
Objective 5.1: Urban Central Business District designated as an appropriate area for iniemive
growth and development. The UCBD is intended for high intensity, high density multi-use
development which may include any of the following: retail, financial, office (also including
professional and governmental offices), cultural, recreational and entertainment facilities, high
density residential, or hotels and should be located in close proximity to public facilities.
Policy 5.1.1: Purpose of Urban Central Business District. Establish the UCBD to: (1)
Plan appropriate and balanced land uses on a scale and at an
intensity, consistent with the availability of public facilities and services;
(2) Facilitate mixed use development; (3) Encourage mass transit; (4)
Reduce the need for automobile travel; (5) Encourage quality
development; and (6) Give definition to the urban form through a
vertical and horizontal mix of uses rather than strip-type development.
Policy 5.1.2: Characteristics of Urban Central Business District. Establish the UCBD as
a multi-use area appropriate for intensive growth and having the
following characteristics: (1) Compact in design; (2) Flexible, versatile
building design that will outlast initial uses and create long term value;
(3) High densities and intensities; (4) Proximate and accessible to major
arterial roadways; and (5) Adequate public facilities including roads,
water, wastewater, solid waste disposal, stormwater drainage, and
recreation.
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Policy 5.1.3: Location Requirement. Locate the UCBD in an area suitable for
increased development of regional impact guidelines and standards.
Policy 5.1.4: Boundaries. Define the UCBD as a geographical area having
boundaries coinciding with and overlaying the boundaries of the Town
Center District, as delineated on the Future Land Use Map.
Policy 5.1.5: Expansion of an Urban Central Business District. Expand or reduce the
boundaries of the UCBD, as needed from time to time, by an
amendment to the Comprehensive Plan text or an amendment to the
Future Land Use Map of the Comprehensive Plan.
•
Objective 5.2: Design Criteria for UCBD.
Policy 5.2.1: Intensity. Consider pursuant to the guidelines and standards for
Developments of Region Impact ("DRI") (28-24.014(10)(a)(2)FAC), the
DRI threshold for development within the UCBD as: 800,000 square
feet of commercial retail, 600,000 square feet of office and 700 hotel
units, with not less than 700 residential dwelling units, nor more than
4,000 residential dwelling units.
Policy 5.2.2: Future Land Use Designation. Require the future land use designation of
all development within the UCBD to be "Town Center".
Policy 5.2.3: Public Areas within the Town Center. Incorporate pedestrian nodes„
such as plazas, parks, squares, gardens, courtyards, or other public
green space areas.
Policy 5.2.4: Coordination with Transit. Incorporate transit friendly features pursuant
to the City's Comprehensive Plan Transportation Element, Policy 1.6.2.
Policy 5.2.5: Block Size and Interconnectivity. Require developments to have an
interconnected network of walkable streets and pedestrian-sized
blocks.
Policy 5.2.6: Pedestrian Friendly Site Design. Promote pedestrian gathering and
circulation by requiring all of the following:
• Safe and convenient pedestrian connection to commercial shop
fronts from rear parking areas. Connection might be by public
sidewalk or through plazas, courtyards, vias, or corridors;
• Transit stops which are well connected to pedestrian circulation
systems and include shelter from the elements and sitting areas;
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• Sidewalks that are a minimum of 12' wide along in front of
commercial shop fronts and are a minimum of 6' wide in all
other areas;
• Provisions for immediate shade along streets by inclusion of
larger caliper shade trees, expanded awnings or colonnades
for commercial shop fronts, and~or other means;
• Pedestrian lighting and subdued night lighting of display
windows and building interiors along street frontages;
• Room-sized areas of habitable space along street frontages in
commercial shop fronts with entrances at the same grade as the
sidewalk; and
• Streetscape design as set forth in the Town Center District Code.
Policy 5.2.7: General Design of Individual Developments within the Urban Central
Business District. Require all development within the UCBD to comply
with the Town Center District Code. Require development to include
diversity in detailing and style while maintaining aesthetic harmony and
buildings to include at least two floors of occupiable space.
Policy 5.2.8: Service Areas. Prohibit service areas from being located in front
yards and require that they are not be visible from public rights-of-
way or squares, parks, or primary space. Design service areas to the
standards set forth in the Town Center District Code.
Policy 5.2.9: signage. Require commercial shop front signage to include a variety
of creative signage types (including projecting signage and fin signs)
and encourage the use of exposed neon for building fayade signage
as set forth in the Town Center District Code. Utilize directional (way
finding) signage to direct pedestrians to businesses and streets.
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B. INTRODUCTION
This is the year of the City's 50"' anniversary. It is an important milestone and represents a new
era for the City, as it transitions toward greater sustainability.
Located in the heart of central Florida, Winter Springs has a growing economy, a professional
workforce, and offers an excellent living environment. The City is a sought after location for
families and young professionals with exceptional schools, nationally recognized parks, low crime
rates, and beautifully landscaped streets. It has easy vehicular access to the S.R. 417 (Seminole
Expressway~Central Florida Greeneway) and linkage to area airports and the greater Orlando
metro area. In 2007, the City was honored by Money Magazine, with the designation of "2nd
Best City in Florida" and the "31st Best City in the U.S. to live". In 2006, the City was designated
"#1 Best City in the United States in which to purchase a home" by MSN Advisory Services.
Emphasis on the integration of land use with transportation systems will occur and by 2030, the
City will likely reach build-out of its vacant lands. During this transition period, the City will
experience the completion of its two strategically located districts- the Town Center District and
the Greenway Interchange District. The Town Center is planned to develop into a blend of
business and employment, entertainment, retail, and residential uses and the Greenway
Interchange District is planned to develop with target industry based employment in conjunction
with the regional SeminoleWAY initiative.
The Future Land Use Element designates future land use patterns, densities, and intensities of land
use to accommodate balanced and sustainable growth for the City's projected population. The
element is dependent upon the goals, objectives and policies of all of the other elements in the
Comprehensive Plan to minimize adverse impacts on natural resources and maintain essential
facilities and services at desired levels to maintain the quality of life within the City.
•
The element begins with a narrative describing the historical context of the City, followed by a
description of its current character. An inventory and analysis of existing land use data and
patterns as of February 2009 is included. The Existing Land Use Map, (Map I-3) illustrates the
location and distribution of these land uses. As required by Rule 9-15, F.A.C., the Map also
displays existing land uses within County enclaves and in unincorporated parcels at the City's
fringe. A tabulation of the acreage of each land use within the City's boundaries is included in
Table I-1.
A description of the physical features found in the City, such as wetlands, soils and other natural
resources that impact the character of the City follows. Knowledge of these features is especially
useful in analyzing the development potential of the City's remaining vacant lands. Population
projections are presented, and issues related to growth management are discussed. The
appropriate location for future uses are described, and densities and intensities are established
for each. The Future Land Use Map, (Map I-1) indicates the proposed location and distribution of
land uses within the City's current boundaries, through the year 2030. The Future Land Use Map
and associated policies and definitions will guide the review and permitting of new development.
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1. General History
Since WWII, the United States has experienced great wealth building. This prosperity has
lead to the proliferation of automobiles and expanded housing opportunities on the fringe
of cities. The "American Dream" of owning your own home in the suburbs has been
realized by many. The suburbs were idealized as a safe haven for raising a family. All
across America, people choose the suburban lifestyle, believing that it provided the
highest quality of life available. While the breadwinner of the family was relegated to a
short commute into Orlando during the week, the suburban lifestyle was considered a
respite to return to and a place where the family could enjoy all the amenities associated
with "country" living, such as open space, clean air, and low crime. Additionally, and most
importantly, the suburban model offered an attractive alternative to city living. All across
America, people choose the suburban lifestyle, believing that it provided the highest
quality of life available. And perhaps it did- because this was also a time when the
automobile was still considered a luxury item.
It was during this time that the Village of North Orlando (now known as the City of Winter
Springs) was founded 20 miles north of Orlando in south-central Seminole County, by a
New York development company. Homes were marketed as "country estates" and could
be purchased for as low as $20 down and $20 per month. The first residents numbered
only 200 people. House Bill 2474, created the municipality of the Village of North
Orlando on June 20, 1959. North Orlando was the sixth municipality in Seminole County
and the smallest, consisting of only 160-acres and was located on the west side of present
day Winter Springs. The chief reason for the incorporation was to enable the developers
to have control over the building and evolution of the village and to allow them to
establish their own ordinances and regulations. The North Orlando Company also
provided their own water and sewer utilities. North Orlando grew to 3,500 acres during
the 1960's by additions primarily comprised of lands owned by a single developer. The
first business to open was the North Orlando Super Market, in 1965 and in 1970, the
population was only 1,1 bl .
In 1972, North Orlando almost doubled its size with the annexation of a large 3,200 acre
tract known as Tuscawilla. This expansion created the largest incorporated area in
Seminole County. In March 1972, a new city charter was drawn up and adopted in a
city-wide election. New city officials were elected and on April 20, 1972, House Bill No.
3390 abolished the municipal government of the Village of North Orlando and
established the municipality of the City of Winter Springs. The City of Winter Springs was
incorporated on June 13, 1972.
During the period of 1998 to 2007, the City's boundaries continued to expand with the
annexation of 602 acres, moving eastward past S.R. 417. This expansion was met with
great opposition from Seminole County, the rural area (Black Hammock) residents, and the
City of Oviedo. In 2006, due to a change in the City's political will, the City amended its
code of ordinances to prohibit annexation of property located east of Deleon Street,
effectively curbing the possibility for future sprawl. Additionally, the Future Land Use
Element was amended to include a policy stating the same. This annexation boundary to
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the east along with the natural boundary of Lake Jesup to the north and the adjacent
cities of Oviedo, Casselberry and Longwood, along its borders, limit the available land
that can be annexed into the City in the future. The City currently includes 9,478 acres, or
14.8 square miles of area with an estimated population (2008) of 34,490 [source BEBR,
2008]. It is expected that even with annexation of county enclaves, the City will still
remain at approximately 15 square miles. Map I-2 identifies the general location of the
City within Seminole County.
2. General Character
Like many post WWII suburban landscapes, Winter Springs developed predominantly as
a residential community, dependent upon the automobile for access to retail services and
employment. Although strip commercial centers emerged along S.R. 434, the City lacked
a center- a place that established an identity for the community and a place to come
together. This desire for something more is evident in the following excerpt form the City's
1990-2010 Comprehensive Plan:
•
• Strengthen and diversify the City's tax base and provide employment
opportunities for residents through the use of mixed use developments to include
residential, commercial and recreational areas, coordinated in form and function,
while retaining the family-oriented community environment.
• Integrate the east and west sections of Winter Springs through land use changes
and transportation improvements. "To integrate the two sides of town, the Winter
Springs Loop Road has been planned to route resident to the new commercial and
mixed use areas on the north part of town. By attracting employment centers and
related commercial concerns residents will have incentives to shorten their travel
times by remaining in the city limits and supporting local enterprises."
Subsequently, in 1998, under the creative direction of Dover, Kohl 8~ Partners town
planning, Gibbs Planning Group, and Michael Design Associates and under the skillful
leadership of a new city manager, Ron McLemore, the vision began to unfold through a
series of charettes. These charettes were a collaborative effort which included City policy
makers, land owners, homeowner association representatives, developers, Seminole
County staff, the Tourist Development Council, the Economic Development Council, and the
Florida Department of Transportation.
The development of the Town Center was desired to create a vibrant "downtown" heart to
the suburban city. However, the Town Center is not just for those who live within it. As
described by the consultant team, "the Town Center is to be a place where people can
reside in a mix of single and multiple family dwellings, and also gather to shop, relax,
recreate, be entertained, attend community events, and enjoy the natural beauty of lands
located in the Town Center". The Town Center Master Plan is depicted on Map I-3.
•
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CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN FUTURE LAND USE ELEMENT
In the Town Center, the public realm is reclaimed as an amenity- for the public. Emphasis
is given to the form and relationship of traditional streets, squares, and neighborhoods.
Buildings are placed close to the street, framing the space as an outdoor room and parks
and green spaces are provided as neighborhood gathering spaces. Rather than
maintaining private property and fostering exclusivity, the Town Center invites the public
in. "Cities are incomplete (and they do not feel or function like healthy cities) without
centers... A traditional Town Center is the physical place where many basic needs of
citizens are conveniently and tightly focused: shopping, working, governance, being
entertained, dwelling, and the arts all happened together in a Town Center because it is
pragmatic to do so" (Dover, Kohl 8~ Partners, 1998).
•
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Map I- 3: Town Center Master Plan
Source: Dover Kohl & Partners.
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CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN FUTURE LAND USE ELEMENT
Although the City has made great strides in establishing its Town Center, the economic
downturn has halted its growth temporarily. However, over the next two decades, as the
City approaches build-out, it will see the fruition of the Town Center and the Greeneway
Interchange District. Of the City's total land area, only 8.8% remains vacant and
developable. Areas with the largest consolidation of vacant developable parcels are the
Greeneway Interchange District and the Town Center District. These two districts will
provide the diversity and economic heart that the City is currently lacking. Pressures to
redevelop older commercial areas of the City will also increase as vacant land becomes
scarce.
C. EXISTING LAND USE DATA AND INVENTORY
The development of a detailed Existing Land Use Map can reveal the City's success in
implementing its Future Land Use Map and answer the question, "How are we doing?" A direct
correlation exists between the detail included in the Existing Land Use Map and the opportunity
for analysis.
The Existing Land Use Map (Map I-4) illustrates existing land uses as categorized by use, density,
and intensity. This illustrative inventory can be further evaluated in tabular form by acreage, as
included in Table I-1. Examination of both map and tabular data will reveal land use
inconsistencies and highlight areas needing further attention and improvement. The Existing Land
Use Map included herein is a snapshot in time. It depicts those uses occurring in February 2009,
as verified through the property appraiser's data, aerial photography, building permit records,
and field verification. Because land use is not stagnant, it is important that the City's Planning
Division continue to track these changes and continue to keep its data base current.
1. Existing Land Use Categories
The land use categories shown on the Existing Land Use Map are in accordance with the
requirements set forth in Rule 9J-5.006 (1)(a), F.A.C. However, additional detail is
included beyond the minimum requirements for the purpose of analysis. The Existing Land
Use Map also includes more detail and different categories than included in the Future
Land Use Map. As a result, there is no direct correlation between the categories in each
map. For example, the Existing Land Use Map does not include a "Town Center"
category, because the Town Center designation allows for a wide variety of land uses.
Therefore, the specific type of land use is identified on the Existing Land Use Map.
Having the specific land use identified, allows the city to better analyze, "How are we
doing in achieving our objectives?"
Table I-1 lists each existing land use category and its corresponding acreage in March
2009.As illustrated, several of these categories have little to no acreage associated with
them. They are included to illustrate that the intensities and densities allowed (especially
within the Town Center) have not being realized, to date. In order to achieve the vision of
sustainable economic vitality within the Town Center, the City should require a minimum
residential density, as well as higher intensity development. This can be achieved by
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CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN FUTURE LAND USE ELEMENT
requiring buildings to have at least two floors, so that higher floor area ratios (as
permitted) are realized. A definition of each existing land use category follows, as well
as a brief description of existing conditions.
Table t - 1: Existing Land Use Table (2009)
Existing Land Use Categories
_ Density/Intensity Acreage Percent of
Total
Residential- HOA Common Areas included in residential acreage
Residential- Rura! Density up to 1 du/gross acre 1,1 bl 14 percent
Residential- Low Density 1.1 to 3.5 du/gross acre 2,303 27 percent
Residential- Medium Density 3.6 to 9 du/gross acre 618 7 percent
Residential- Mobile Homes up to 9 du/gross acre 137 2 percent
Residential- High Density 9.1 to 21 du/gross acre 203 2 percent
Residential- Town Center Density 21.] to 36 du/gross acre <1 <1 percent
own Center Vertical Mix up to 2.0 FAR or
up to 36 du ross acre <1 <1 percent
Commercial- UCBD .50 to 2.0 FAR 0 0 percent
Commercial- Green WAY .50 to 1.0 FAR 0 0 percent
ommercial- Neighborhood ~ General up to 0.50 FAR 123 1 percent
Industrial up to 0.50 FAR 84 1 percent
Public/Semi-Public up to 0.50 FAR 637 8 percent
Recreation- Private 8: Public up to 0.25 FAR 682 8 percent
Open Space included in recreation acreage N/A N/A
Resource Protection- Drainage included in residential acreage N/A N/A
Conservation not developable 1,434 17 percent
acant Constrained likely not developable 343 4 percent
acant Developable varies based on FLUM 768 9 percent
OTAL 8,494 100 percent
NOTES: Existing Land Use Categories Common Area/HOA and Resource Protection~Drainage were integrated into
he appropriate corresponding residential land use for this analysis.
SOURCE: Cit of Willer S rin sand Plannin Communities LLC, March 2009
Density is the total number of dwelling units (du) divided by the total project area,
expressed as dwelling units per gross acre. Density is associated with residential land
uses because it also is a tool for calculating impacts to population growth.
Intensify is the concentration of development activity on a parcel as measured by floor
area ratio.
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CITY OF WINTER SPRINGS
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Floor Area Ratio (fAR) is the gross floor area of a building divided by the total area of
the site on which the building is located, expressed as a decimal number. FAR can be
used to describe any land use with buildings, whereas density describes only residential
land uses.
The diagram below illustrates three simple ways that a 1.0 FAR might be reached: one
story covering the entire lot, 2 stories covering half the lot, or 4 stories covering a quarter
of the lot. All result in the same FAR.
.
... :'f..
Calculation of the FAR does not consider a maximum height for the structure. Buildings of
equal FAR, can have significant differences in appearance depending upon the site,
landscaping and architecture.
Gross floor Area is the total square footage of all levels within the surrounding walls of a
building.
The folbwing are to be included in gross floor area for the purpose of computing floor
area ratio:
• Exterior walls (that is, thickness included);
• Stairways (internal and external), elevators, escalators, and similar features;
• Storage and mechanical rooms (internal or external);
• Laundry rooms, closets, storage rooms, built-in cabinets and media niches;
• Mezzanines and lofts;
• Porches, patios, and breezeways with a "solid" cover and enclosed by "solid"
walls on more than two sides;
• In single family and duplex residential uses, attached or detached garages and
carports; and
• Accessory buildings that are deemed habitable space, including, but not limited to
guest houses and second units.
• For vertical mixed use developments, the residential square footage is added to
the commercial development to derive the total FAR.
The following areas are to be excluded from gross floor area ratio for the purpose of
computing floor area ratio:
• Basement, underground parking, and attic spaces;
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CITY OF WINTER SPRINGS
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• Porches, balconies, patios, breezeways, and decks (as well as overhangs, eaves,
cantilevers, awnings and similar features) with a "solid" cover but not enclosed by
"solid" walls on more than two sides;
• Porches, balconies, patios, breezeways, decks and gardens which do not have a
"solid" cover;
• Parking structures and garages which are incidental to a primary use on the same
site in multi-family, commercial, office, industrial and public/semi-public uses; or
• Other uninhabitable space.
a. Existin Residential
C7
Winter Springs was originally founded as a residential community and residential
land use continues to dominate the developed acreage of the City. Winter Springs
has a healthy diversity of residential housing options available that appeal to a
wide range of age groups, income levels, and family sizes. Housing choices
include everything from zero lot line single family detached homes to grand
estates on five-acre parcels. Additionally, there are patio homes, duplexes,
townhomes, condominiums, manufactured homes, mobile homes, apartments, and a
few adult congregate living facilities, and a few garage apartments. There are
no RV or recreational campgrounds, no transient housing, no time-sharing facilities,
no seasonal units and no farm residences. Also, there are no assisted living
facilities, adult family care homes, or adult day care centers within the city limits of
Winter Springs and no motel or hotels. However, these uses would be classified as
commercial uses rather than residential.
Approximately 54% of the City's current housing stock was constructed during the
period from 1970 to 1990. A majority of that housing is included in planned unit
developments with active homeowner associations. As of the 2000 Census, the
average single family home was built in 1987. The majority of the City's housing
stock is in good condition. The Housing Element includes more detailed information
on this topic.
It should be the objective of the City to protect existing housing values and
develop policies that result in the appreciation of existing neighborhoods. In
addition, the objective of new development should be to contribute to favorable
quality of life conditions within the community, as well as to accommodate
projected population growth. Growth for Winter Springs from 2000 to 2010 was
anticipated to occur at a slower rate than from 1990 to 2000, even prior to the
recent decline in housing values and sales.
The Existing Land Use Map illustrates seven (7) categories of residential uses,
based on density and use. These are: Town Center Density (21.1 to 36 du/gross
acres), High Density (9.1 to 21 du/gross acres), Medium Density (3.6 to 9 du/gross
acres), Mobile Homes (up to 9 du/gross acres), Low Density (1.1 to 3.5 du/gross
acres), Rural Residential (under 1 du/gross acre) and Home Owner Association
(HOA) Common Areas (undeveloped). Acreage for each is identified, except for
•
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CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN FUTURE LAND USE ELEMENT
HOA Common Areas, which are included in the acreage of the corresponding land
use associated with the development. Together, these uses make up 52% of the
City's total acreage. Single family is the most predominant housing type.
A proper mix of different housing types and housing that accommodates different
life styles helps to encourage the development of swell-balanced community. In
2000, more than 74% of the housing units were single family detached homes,
nearly 6% percent were single family attached, .5% were duplexes, nearly 15%
percent were multifamily units, and 4.5% were mobile homes.
During the period of 1998 - 2003, single family detached units dominated the
residential market in Winter Springs. However, after 2004, (except for a few
custom homes) the market was dominated by townhouse and condominium
construction. This was primarily the result of reduced land availability, increased
housing prices, and support for higher density housing in the Town Center. It is
anticipated that the City will continue to see a decrease in construction of single
family detached units as the City nears build-out.
In 2009, there were 4,423 developed residential acres within the City. Residential
lands are primarily scattered throughout the City, with two exceptions. To the
northwest, in the vicinity of U.S. 17-92, are 47.3 acres of Medium Density
Residential. Additionally, there is one significant swath of Rural Residential land in
the south central area of the City, adjacent to Dunmar Estates. This area is noted
as having a rural character and is envisioned to remain as large equestrian
parcels, even as infill occurs.
The lower the density, the greater the acreage required to accommodate the
residential use. Development of extremely low density residential uses within
incorporated areas is considered a major contributor to urban sprawl and such
inefficient land use patterns are now discouraged by the State of Florida.
Vacant land or lots for single family homes within the City is available, but is
minimal. As vacant land becomes increasingly scarce, the City will see more
demand for higher density housing and for splitting larger lots. Current studies
also indicate a trend among persons of the Generation X and Generation Y to
locate in higher density housing located in activity centers.
The Town Center District allows greater diversity in housing types than other areas
of the City. Accessory dwelling units, such as garage apartments are allowed by
right and the Town Center has been identified as the area where the City's highest
density of housing is appropriate. By right, residential density can be developed
up to 36 du~gross acre. Initially, no minimum density was established, however a
policy is now included which establishes a minimum average density per
development so that the economic goals of the Town Center can be realized. To
date, less than one acre of land has been developed in the density range of 21.1
to 36 du~gross acre.
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CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN
FUTURE LAND USE ELEMENT
b. Existing_Town Center Vertical Mix
In 1998, a master plan (Map I-3) was created for the Town Center, as
collaborative effort which included City policy makers, land owners, homeowner
association representatives, developers, Seminole County staff, the Tourist
Development Council, the Economic Development Council, and the Florida
Department of Transportation.
The Town Center is based upon traditional neighborhood development (TND)
standards. The designation allows and encourages higher densities and intensities,
as well as mixed use development, built on a pedestrian scale interconnected grid
of streets and blocks. The types of uses permitted within the Town Center include a
variety of residential and non-residential uses to encourage a mix of uses that is
necessary for the economic viability of a city center.
The Town Center is the only area within Winter Springs which allows a vertical mix
of uses by right. To date, one building has been built which includes a vertical mix
of uses.
The Town Center is focused on the intersection of S.R. 434 and Tuskawilla Road.
c. Existing Commercial
Most commercial development in Winter Springs can be characterized as strip
commercial including one-story buildings with corresponding low floor area ratios
and surface parking fronting onto the major roadways. The majority of businesses
in Winter Springs provide services and products to residents of the City and the
immediate area. The typical commercial uses include retail stores, convenience
stores, gas stations, professional offices, banks, personal services, and restaurants.
Most commercial activity is located on or near S.R. 434, U.S. 17-92, S.R. 419 or
the Oviedo Marketplace Mall, but there is also a small concentration of businesses
grouped on Winter Springs Blvd in the Tuscawilla PUD. Additionally, there are a
substantial number of home-based businesses. Major employers include Seminole
County Public Schools, the City of Winter Springs, Publix Supermarket, Inwood
Consulting Engineers and EZYield.com. Commercial areas are allowed to build up
to a maximum floor area ratio (FAR) of 0.50.
With the development of the Town Center at S.R. 434 and Tuskawilla Rd., the City
is seeing increased diversification of its economy. The Town Center is intended for
the most intensive commercial development in the City. Commercial areas in the
Urban Central Business District (UCBD~Town Center) can build up to a maximum of
2.0 FAR. However, less than one-acre of the Town Center has developed with a
FAR over .50.
Analysis of development data indicates that to date, the Town Center is being
under-developed. Although concessions were required initially to get development
started, it will be necessary for higher intensity development to occur in the future,
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CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN
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for the Town Center to succeed economically and to be the vibrant place
envisioned.
Just east of the Town Center, is the Greeneway Interchange District (GreenWAY)
located at the juncture of S.R. Road 417 and S.R. 434. The GID is expected to
become a premier employment center with professional office buildings,
conference facility and hotel. The GreenWAY is located within the
"SeminoleWAY", which is being planned as a regional collaborative effort with
Seminole County and other affected entities as a high tech extension of the
Orange County "Innovation Way". Commercial areas in the GreenWAY can build
up to a maximum of 1.0 FAR. However, to date, no development has occurred
within the GreenWAY. Like the Town Center, under-development can easily occur
if higher intensities are not required.
The City of Winter Springs also participates in the activities of the U.S. 17-92
Community Redevelopment Agency (CRA) through its membership on the U.S. 17-
92 Redevelopment Planning Agency (RPA). The CRA was established in 1997 and
its mission is "to realize the full economic and functional potential of the U.S. 17-92
corridor through strategic and timely investments that enhance the competitiveness
and desirability of the corridor for the business community and the public at
large." In 2008, the CRA was designated a Brownfield~SEED [Seminole Economic
Enhancement District] area for the purpose of environmental remediation,
rehabilitation and economic redevelopment, as allowed under Sections 376.77-
376.85, Florida Statutes.
Estimates in 2009 indicate that city-wide, there were 807 business establishments,
employing 6232 employees [source- SCR, LLC., 2009]. Total existing Commercial
acreage equals 123 acres, or 1 percent of the land designated on the Existing
Land Use Map.
d. Existing Industrial
Existing Industrial uses include very light, light and heavy industrial. Typical
Industrial uses in the City include light manufacturing (including wholesale cabinet
and shed manufacturing), assembly, processing, storage of product, automobile
detailing and painting, and scrap metal recycling. The maximum floor area ratio
for all Industrial uses is 0.5 FAR. Industrial lands are located predominantly on the
edges of the City- on the north side of the City, along State Road 419 and the
CSX railroad line, along the east side of U.S. 17-92, on Belle Avenue, and on the
east side of the City at Cress Run and Deleon Street. The uses at Cress Run and
Deleon are all non-conforming Industrial uses and existed in this area prior to the
City annexing the land from Seminole County. All of these parcels were
designated with a Rural Residential future land use designation with the intent that
over time, the existing non-conforming structures and uses would transition into
residential use. Of these non-conforming uses, only Eagle Bay Woodworking has
a formalized arrangement with the City to be allowed to continue the non-
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CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN FUTURE LAND USE ELEMENT
conforming use for a period of time (not to exceed fifteen years). There are
currently 84 acres with Industrial uses within the City.
e. Existing_Publi~Semi-Public
Existing Public/Semi-Public uses include public facilities and private non-profit
facilities. This category includes all public structures or lands that are owned,
leased, or operated by a government entity, such as civic and community centers,
public schools, police and fire stations, post office, and government administration
buildings. The non-profit and semi-public uses include churches, private schools,
vocational and technical schools, institutions, group homes, emergency shelters and
other similar uses. There are currently 637 acres with Public/Semi-Public uses
within the City.
f. Existing Recreation and Open Space
The quality of fife for Winter Springs' residents is linked closely to the
development and management of awell-maintained, accessible system of public
parks, trails and open space. Existing Recreation and Open Space uses include
park and recreation facilities owned by the City, County and State; open space
owned by the City; private parks and golf courses; as well as, recreation facilities
located at area schools. The City of Winter Springs is well known for its award-
winning Central Winds Park and the quality of recreational programs and events
• offered there. Such facilities play a key role in shaping both the landscape and
the quality of life of Winter Springs' residents through the conservation of natural
resources and provision of recreational facilities.
There are currently 682 acres of recreational and open space lands within the
City. Open space is defined as "undeveloped lands suitable for passive
recreation or conservation".
The Recreation and Open Space Element provides a complete inventory of sites
and facilities provided for recreation uses.
g. Existing Resource Protection/Drainaae
This category is identified on the Existing Land Use Map as a separate category,
because these areas are designated on residential plats as areas of resource
protection and occur along creek beds. However, the designation is not as
restrictive or as protective as "Conservation"; Therefore, acreage in this category
has been integrated into the appropriate corresponding residential land use for
analysis.
h. Existing Conservation
Existing Conservation lands include public lands that have been acquired and
private land areas that have been reserved by mutual agreement with the
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CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN
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property owner for the preservation and protection of Winter Springs' natural
resources. There are currently 1,434 acres designated as Conservation on the
Existing Land Use Map.
i. Vacant and Vacant Constrained
This category includes vacant and undeveloped acreage, as well as lands which
currently have no active uses. There are 1,1 1 1 Vacant acres within the City. Much
of this acreage is located between S.R. 434 and Lake Jesup. In total, roughly 13
percent of the City can be considered Vacant. Of this total, only 768 acres (9
percent of the City) is considered developable. The remaining land is considered
Vacant Constrained.
Vacant Constrained are lands identified by the Conservation Overlay (see Future
Land Use Map categories). These are Vacant lands located within the
Conservation Overlay. However, the Conservation Overlay is derived from
generalized mapping data. Once site specific study and analysis is completed,
some of these Vacant Constrained lands could be determined to be developable.
Lands located identified as Conservation are not included within the
Vacant/Vacant Constrained land use acreage.
j. Historic Resources
As one travels around Winter Springs today, there is little evidence of the peoples
and the history that have shaped the City. According to the Florida Master Site
File, maintained by the State Division of Historical Resources, there are no historical
standing structures or archaeological sites within the City. No references to
remaining historical structures or sites are indicated on the Existing Land Use Map.
Even though the City's history only goes back to 1959, the area was occupied by
an assortment of people long before that. According to John Baker, City Historian
(June 1994, 35th anniversary celebration) the area has been occupied for some
4500 years. The primary Native American tribe was the Timacuans, a large,
robust people whose leaders were often women. Historical reconnaissance studies
have found evidence of Indian middens on the south bank of Lake Jesup and a
sloth jawbone was reported to have been found just north of Winter Springs High
School.
On many old deeds and other documents pertaining to the area, the name of
Moses Levy appears. Moses Elias Levy (1782-1854) was a New York merchant
who made a fortune in lumbering and trade with the Spanish and amassed
hundreds of thousands of acres prior to the U.S. acquisition of Florida from Spain
in 1821. All of what is now Winter Springs was once owned by Levy. Plats
revised in 1852 recognized Spanish land grants to Moses Levy, Philip K. Yonge,
and others, as the federal government opened the area to settlers.
Lake Jesup was named on May 22, 1837, by Lt. Richard Peyton for Gen. Thomas
S. Jessup, a prominent figure in the Seminole Wars. The "discovery" of the lake
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CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN
FUTURE LAND USE ELEMENT
required 52 hours of rowing a barge 90 miles to get to it. At least one old map
from that time refers to it as "Lake Peyton". [In 1981, the U.S. Board of
Geographic Names settled on "Jesup" as the correct spelling of the lake.] A wharf
and store was located at the shore of Lake Jesup at the end of what is now
Tuskawilla Road (previously known as Brantley Road). Partners George C.
Brantley and Col. Daniel Randolph Mitchell made their wharf and store (c. 1865)
here the area's center of commerce. There are no historical remains of these.
Brantley's Wharf and nearby Clifton Springs (off of Spring Avenue) were as far
south as steamboats could land freight for wagons to haul to Maitland and
Orlando. Vincent Lee was an early homesteader.
In 1874, Brantley bought and named a nearby site "Tuskawilla" after an Indian
village of the same name in Alachua County (now known as Micanopy). A post
office was established there by Liver Prince. In the early days of the settlement,
Tuskawilla Road was a rugged wagon trail blazed for the construction of a
railroad line from Lake Jesup to Orlando. The 1873 effort of Brantley and
Mitchell failed when both died while the roadbed grading was half completed.
Steamboats and rail were important aspects of the economic development of the
area at the time.
In the early 1900s, the cities of Sanford and Oviedo were connected by a dirt
road, which passed through what is now Winter Springs. This road was paved
with brick around 1920 and was known as the Sanford-Oviedo Road. Most
remnants of the old brick road have long since been removed. However, a small
potion of the road may still exist at Layer Elementary School adjacent to the row
of old oak trees.
The area lay dormant until 1957 when Ray Moss and William Edgemon purchased
land under the name of the "North Orlando Company," a subsidiary of the Silver
Creek Precision Co., Silver Creek, New York [later known as the Commercial
Corporation of Allentown, PA.]. The first residents, equaling approximately 200
people, moved into homes on the north side of S.R. 434. A "country estate" could
be purchased for as low as $20 down and $20 per month (The Sanford Herald,
Feb. 18, 1959). An applicable quote, from the North Orlando Country Estates
advertisement states, "cities grow because of people and industry; more industry
means more people; more people means more homes; more homes increase land
demand, up values- grand for those who bought early."
House Bill 2474, created the municipality of the Village of North Orlando on June
20, 1959. The Village was the sixth municipality in Seminole County and the
smallest, consisting of only 160-acres. The Village was located on the west side of
present day Winter Springs. The chief reason for the incorporation was to enable
the developers to have control over the building and evolution of the village and
to allow them to establish their own ordinances and regulations. The North
Orlando Company also provided their own water and sewer utilities.
I-41
CITY OF Vt~INTER SPRINGS
COMPREHENSIVE PLAN FUTURE LAND USE ELEMENT
The Village was a `company town' and all the Village Council were employees of
the North Orlando Company, who were appointed to serve. It wasn't until 1962
that residents had an opportunity to select members of a council who would
represent their needs. Selection of the mayor, however, was by secret ballot from
the five council members until 1966 when a referendum charter change
determined that the mayor was to also be elected by the people.
In 1960, the community had one public building, which housed the Water
Company's office, offices for the Florida Land Company employees, and an office
used by the Village as City Hall. Although there have been no designated,
historically significant structures to date, this building may potentially be eligible
for listing in the National Register of Historic Places as it approaches 50-years old.
The building is located at Fairfax and S.R. 434 and was purchased by a private
citizen in 1995. The first streets were N. Fairfax and N. Devon. In 1965, the first
store opened, aptly named, the North Orlando Super Market.
2. S.R. 434 Corridor Vision Plan
In 1997, the City established and adopted a vision plan for the S.R. 434 corridor. It was a
collaborative planning process with meaningful public participation in the development of
the concept and design guidelines for the corridor.
The S.R. 434 corridor was divided into two overlay areas, as shown on the City's Official
Zoning Map, due to the different characteristics on the east and west sides of the City.
The dividing boundary was determined to be Hayes Road. The following section defines
the two overlay areas.
a. Redevelopment Area Overlay District
The Redevelopment Area Overlay District is defined as, "All properties (involving
the entire parcel) lying within the corporate limits of the City adjacent to the S.R.
434 right-of-way from U.S. 17-92 eastward to Hayes Road."
It is the intent of this district to encourage enhanced property development that is
consistent with the character of the surrounding neighborhoods and development.
The buildings will not be encouraged to go higher than thirty five feet and should
be located closer to the street to encourage pedestrian activity. Design guidelines
will be maintained in the City's Code of Ordinances to promote orderly
development and redevelopment of the corridor.
b. New Development Area Overlay District
The New Development Area Overlay District is defined as, "All properties
(involving the entire parcel) lying within the corporate limits of the City adjacent to
the S.R. 434 right-of-way from Hayes Road eastward to the easternmost
boundary of the City." However, should any conflicts arise between the New
Development Overlay District and the Town Center District the provisions of the
•
I - 42
•
CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN
FUTURE LAND USE ELEMENT
Town Center District shall apply. To the extent that the Town Center District are
silent, then the New Development Overlay District shall apply. It is the intent of
this district to control the physical appearance of new development along the
corridor to produce economic benefits for the City and serve the needs of the
region. Development will be encouraged to have a campus style building layout
that encourages larger buffers and landscaping. Design guidelines will be
maintained in the City's Code of Ordinances to promote orderly development
within the New Development Overlay Area.
3. Natural Resources
The presence of natural resources within the City will affect the future land use pattern.
The ability of land to support development, better known as the carrying capacity, is a
major determinant in land use patterns. The major natural constraints to development are
Lake Jesup, wetlands, and the 100-year flood plain. Environmental permitting
requirements have become much stricter in recent years which should suffice to restrict
development in pristine natural areas and preserve wildlife habitats. Additionally, the
City has adopted a Conservation Overlay designation on the Future Land Use Map to
identify potential sensitive habitat areas that may be worthy of preservation. The
following narrative briefly discusses the natural environment within the City. Much of this
information is discussed in greater detail within the Conservation Element.
•
a. Climate
The City enjoys asub-tropical climate, characterized by warm, humid summers and
mild, dry winters. Daily maximum temperatures average 90°F in the summer and
50°F in the winter. Temperature extremes of over 100°F or under 20°F are rare.
The average annual precipitation in the City is 50 inches per year, most of which
occurs during the rainy season from June through October.
b. Water Bodies
The City of Winter Springs lies on the southwest shore of Lake Jesup. Lake Jesup
was named in 1837 for Gen. Thomas S. Jessup, a prominent figure in the Seminole
Wars. In 1981, the U.S. Board of Geographic Names settled on "Jesup" as the
correct spelling of the lake. Lake Jesup is over 16,000 acres (including flood
plains) and has an estimated alligator population of over 10,000 making it the
densest concentration of alligators in the world.
Prominent creeks feeding into Lake Jesup include Soldier's Creek, Gee Creek, and
Howell Creek. These major features are depicted on Map I-7. In addition to the
north portion of Little Lake Howell, there are also many smaller water bodies
scattered throughout the City.
•
I-43
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CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN FUTURE LAND USE ELEMENT
c. Wetlands
There are wetlands scattered throughout the City. Most of the wetland habitat is
found along the shores of Lake Jessup with a significant portion extending into the
center of the City. Map I-8 shows the location of wetlands throughout the City.
The wetlands in Winter Springs are predominantly classified as palustrine which
consist of hydric hammocks and hardwood swamps, with small areas of cypress,
bayhead, and wet prairie. Map I-9 illustrates the wetland vegetative
classifications located in the City.
d. Flood Zones
There are 1,671 acres within the City within the 100-year flood plain (see Map I-
10) These areas are predominantly limited to the shorelines adjacent to Lake
Jesup, Little Lake Howell, Lake Talmo, -and the riverine flood plains of Soldier's
Creek, Gee Creek, Bear Creek, and Howell Creek. These areas are depicted on
Map I-10.
e. Topography
The physiographic features in the City consist of relatively flat lands with some
gently rolling hills. The lower elevations are found sloping down to the shoreline of
Lake Jesup and adjacent to the creek beds. The higher elevations are found in the
western portions of the City. Overall ground elevations in the City range from less
than 3 feet to over 78 feet mean sea level. The City's topography is illustrated on
Infrastructure Element, Map IV-E-1.
f. Soils
The development potential of land is affected by the types of soils present. Soils
that have poor load bearing features or drain poorly will be more difficult and
costly to develop. Other soils may not be suitable for certain types of
development and septic tanks.
Soil classifications have been determined for the City by the Soil Conservation
Service (SCS) of the U.S. Department of Agriculture. Map I-10 presents the soil
types within the City. Map I-11 depicts soils that are suitable for development.
The Conservation Element presents a more detailed discussion on this subject.
The dominant soils in Winter Springs consist of Urban Land-Tavares-Millhopper
and Urban Land-Astatula-Apopka soils which are characterized as being well-
drained soils that are sandy throughout and contain a loamy sub-soil at a depth of
40 inches or more and are generally found in upland areas.
I - 45
CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN FUTURE LAND USE ELEMENT
•
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Map I- 8: Wetlands
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CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN FUTURE LAND USE ELEMENT
g. Minerals
The City's most prevalent mineral resource is sand. There are also phosphatic
sediments within the City, but their depth and quality are currently unknown.
Currently, there are no mining operations within the City limits.
D. LAND USE ANALYSIS
This section of the Future Land Use Element summarizes existing conditions and potential
development trends and problems. included in the analysis will be the availability of urban
services such as sewer, solid waste, roadways and the availability of potable water. In addition,
there is an analysis of potential limitations imposed by natural resources and man-made
constraints.
1. Unincorporated Enclaves/Future Annexations
In January 2007, the City adopted Future Land Use Element, Policy 1.8.4 establishing an
eastern annexation boundary for the City, at DeLeon Street. The intention of this policy
was to protect the rural and environmentally sensitive Black Hammock area from future
urbanization.
Areas which are islands of unincorporated Seminole County that are completely
surrounded by the City are considered "enclaves". Enclaves total xxx acres. The City is
now more dependent upon infill development and the annexation of these enclaves to
provide growth opportunities.
Most of these enclaves are vacant lands with the exception of developed lands along
Lake Jesup off of Orange Avenue and Spring Avenue, which are generally developed as
low density residential housing. Generally, these parcels are less than ten acres.
An interlocal agreement with Seminole County in 1987 provides that the City will supply
essential governmental services (fire protection, public safety, emergency law
enforcement, and road maintenance) to County citizens residing in defined "areas of
concern". The Agreement states that the County will encourage property owners to seek
annexation and that annexation of any parcels within this area is subject to this
agreement.
The City expects that vacant enclaves adjacent to the existing Town Center boundary will
be annexed and designated as part of the Town Center, sometime prior to 2030. Future
annexations of existing enclaves will help supply land to satisfy the housing, and
commercial needs of the 2030 population of the City.
2. Population Projections
Projecting the City's future population is critical in planning for its future facility needs.
Projected population must be taken into consideration, along with available land, in
preparing the Future Land Use Map and the spatial requirements necessary to meet the
•
I-51
CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN FUTURE LAND USE ELEMENT
City s future growth. Population estimates and projections were prepared by Planning
Communities, LLC, Inc. as part of background information for the Comprehensive Plan.
These projections and associated methodologies can be found in the section entitled
"Population Projections° of this Comprehensive Plan. The estimated 2008 population for
the City was 34,390 total residents. gy the year 2010, this population is expected to
reach 35,857, 40,319 by 2020, and 44,538 by 2030.
3. Analysis of Public Facilities Affecting Development
It is important to ensure that public facilities and services that are necessary to support
development are available current with the impact of development.
a. Potable Water
The City currently owns, operates and maintains a central potable water
distribution system, which consists of three water treatment plants and eight
potable water wells, and four above ground storage tanks. The City's potable
water system provides water for both residential and non-residential purposes,
including fire-fighting demands. The City has historically been able to provide
adequate potable water service to meet the demand within the City's boundaries,
with the exception of a few parcels at the City's perimeter. These are served by
the City of Longwood, the City of Casselberry, or by Seminole County
Environmental Services (SCEs) and represent an insignificant portion of each
utility's service capability. The City does not provide service to unincorporated
areas of Seminole County, with the exception of one commercial property along
U.S. 17-92 that had groundwater contamination from an adjacent property, and
there was no other supplier available. The City also administers a reclaimed
water system and conservation programs, to help manage water demand and
meet potable water supply needs.
b. Wellheads
The City's central potable water distribution system is connected to eight (8)
potable water wells. The City adheres to the standards adopted for wellhead
protection by the SJRWMD and the FDEP, including restricting the type of
development allowed in the vicinity of a wellhead and requiring a 500-foot
protection zone around each wellhead as well as a five hundred (500j foot
minimum spacing between wells. Land use surrounding a water supply site is a
major consideration in the selection and protection of well sites to avoid
contamination. The direction of groundwater flow is to the northeast toward Lake
Jesup. The wellhead protection areas are depicted on Map I-b.
I-52
•
•
CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN
FUTURE LAND USE ELEMENT
Map 1- 6: Wellhead Protection Areas
I-53
CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN FUTURE LAND USE ELEMENT
c. Sanitary Sewer
The City currently owns, operates and maintains a central sanitary sewer system,
which consists of two "zero discharge" wastewater treatment plants, 41 lift stations,
several miles of sewer forcemain, gravity main, and reclaimed water distribution
mains. The City's collection and treatment system provides service to both
residential and non-residential users. The City has historically been able to provide
adequate sanitary sewer service to meet the demand within the City's boundaries.
There are 22 residential connections and 24 general service connections. Three
properties outside the City limits are served by the City's wastewater utility. These
properties, all within the City of Oviedo, include the medical center at S.R. 426
and Winter Springs Boulevard, the Tuscawilla Bend Shopping Center and the
Seneca Bend Subdivision. The City provides service to these properties as required
by an old PUD agreement. there are no County enclaves that are served by the
City's wastewater system.
d. Stormwater,Draingge
The City is committed to maintaining the quality of its surface waters and natural
ecosystems. The City maintains a current Stormwater Master Plan, adopted in
October 1993, which models the City's contributing drainage basins and storm
sewer systems, as well as, identifying the existing improvements, deficiencies in the
overall system, and recommendations and prioritization of drainage improvements.
An update to this document, Supplement 1 (Supplement) was prepared in 2005 to
identify and describe new projects that require attention for the future. The Plan
and Supplement pre an example of responsible commitment to progressive City
planning and resource management. Additionally, the City's stormwater system
protects the safety and welfare of the City's residents by maintaining adequate
drainage facilities to minimize local flooding of streets and property. The City
allows for development within the flood plain, if feasible, but requires the
construction of compensating storage areas to offset any impacts to the flood
plain.
e. Solid Waste
Seminole County operates two solid waste facilities- Osceola Road Solid Waste
Management Facility (OLF) and the Central Transfer Station (CTS). The City
contracts garbage and refuse collection service for residential, commercial, and
industrial customers. Waste Pro currently provides the City with solid waste
collection and recycling services. Household hazardous waste is accepted at the
County facilities.
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CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN FUTURE LAND USE ELEMENT
f. Trans rtation
Current deficiencies were found on S.R. 419 from U.S. 17-92 to Edgemon Avenue,
S.R. 434 from S.R. 4 i 9 to Tuskawilla Road, and S.R. 434 from S.R 417 to Deleon
Street..
U.S. 17-92 showed deficiencies in the 2012 forecast north of Shepard Road
where U.S. 17-92 is a four-lane section. Seminole County is planning to widen this
segment of U.S. 17-92 to 6 lanes; however, the construction phase of the project is
not funded and the schedule for construction is uncertain.
Deficiencies were also identified in the 2012 forecast for S.R. 419 from U.S. 17-
92 to S.R. 434, S.R. 434 from U.S. 17-92 to Moss Road, and from S.R. 419 to
Tuskawilla Road. However, the forecast did not account for additional collector
roads added within the Town Center. In 2005, a traffic corridor study was
prepared to analyze the Town Center and it showed that S.R. 434 could accept
the traffic from the Town Center at build-out for the developments.
In addition to the planned widening of U.S. 17-92, METROPLAN ORLANDO'S
2025 Long Range Transportation Plan (LRTP) includes widening of S.R. 426 to 4
lanes from Pine Street to S.R. 434 in 2010 and widening of Seminola Boulevard to
6 lanes from U.S. 17-92 to Lake Drive (a widening to 4 lanes was completed in
2008). The improvements within Winter Springs and the surrounding roadway
network may alleviate or delay deficiencies identified in the 2012 forecast.
4. Analysis of Natural Conditions Affecting Development
The ability of land to support development, better known as the carrying capacity, is a
major determinant in land use patterns. Winter Springs is impacted by natural constraints,
such as Lake Jesup, its creek systems, isolated wetlands, and 100-year flood plain areas.
Environmental permitting requirements for impact to wetlands, require mitigation within the
Lake Jesup Basin through the SJRWMD. Wetland banking can offer mitigation credits for
purchase. Currently there are no mitigation credits available for purchase within the Lake
Jesup basin. Although permitting requirements also have become stricter in recent years,
which may suffice to restrict development in pristine natural areas and to preserve wildlife
habitats, the City should nevertheless identify areas of significance and seek to ensure
their preservation.
a. Natural Groundwater Aquifer Recharge
As detailed in the Aquifer Recharge Element, areas of groundwater recharge are
extremely well drained and often subject to alteration since these areas are
typically prime lands for development. However, development can compromise
water quality and great care should be taken to protect areas of groundwater
recharge. Natural groundwater recharge to the upper Floridan aquifer is
depicted in Infrastructure Element, Map IV-F-2. The map illustrates that the
I-55
CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN FUTURE LAND USE ELEMENT
majority of the City is located in a discharge area and there are no areas of
significant recharge in the City.
In order to conserve the City's potable water supply, Winter Springs has
established a program that utilizes reclaimed water for irrigation purposes, which,
in turn, reduces the draw down of groundwater supplies. The City's reclaimed
water system has reduced the use of irrigation wells within the City and the system
will continue to be expanded to serve new development.
b. Flood Prone Areas
Approximately 18% of the total land area of the City is within the 100-year flood
plain. These areas are depicted on Map I-10. The main flood hazard zones in the
City include the shoreline along Lake Jesup and the creeks running through the
City. In addition, there are a few smaller scattered areas within the City typically
associated with small lakes. Where possible, development is not recommended
within these flood prone areas. The Code of Ordinances limits development in
undeveloped flood plain areas. The Future Land Use Map Conservation Overlay
is to be used as a tool to identify areas where more scrutiny is required during the
development review process, in order to limit development in flood plain areas.
For these areas, new development is required to meet the standards set by the
HUD Flood Insurance Program. Additional regulations for development within the
flood plains will be maintained in the City's Code of Ordinances to prevent
flooding and require that that there is no new net encroachment in the flood plain
without compensating storage.
5. Vacant Land Analysis
Vacant land data was initially derived from parcel data provided by the Seminole
County Property Appraiser's Office. This data was then reviewed with aerial
photography imaging and combined with the City's Geographic Systems Information (GIS)
data, to be included on the City's Existing Land Use Map. The Existing Land Use Map
(Map I-4) includes categories for both Vacant and Vacant Constrained lands. Map (-5
illustrates these areas.
Vacant is defined as any land which is "not developed" and "not currently being used
under its comprehensive plan future land use map designation". Lands with a
Conservation FLUM designation are excluded from the analysis. These lands do not meet
the City's definition of vacant as their use is preservation and protection of Winter
Springs' natural resources and they are prohibited from being developed. The resulting
vacant lands data was then combined to include the Conservation Overlay from the Future
Land Use Map to illustrate Vacant Constrained lands. Vacant Constrained land is defined
as "vacant lands included within the Conservation Overlay area". The Conservation
Overlay includes properties that may potentially contain wildlife habitat areas, hydric
soils/wetlands special vegetative communities, areas within a public water well radius of
500 feet, 100 year floodplain areas, and other areas subject to environmental or
•
I-56
•
CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN
FUTURE LAND USE ELEMENT
topographic constraints (see Future Land Use Element Policy 1.1.7). Although the
Conservation Overlay area on the Future Land Use Map is not to be considered the exact
boundary, it is a likely indicator of constrained lands. A final determination of the
suitability for development is determined during development review and requires that all
mitigation requirements have been met.
Many of the parcels that remain undeveloped as of March 2009, are vacant due in part
to environmental constraints. The most frequent constraint is the presence of wetlands.
During the period, 1998-2007, many of the lands that were developed, were
accomplished by purchasing mitigation lands to compensate for the on-site wetland
impacts. Impacts to wetlands within the Lake Jesup Basin as managed by the St. Johns
Water Management District (SJRWMD), require mitigation lands that are also located
within the Lake Jesup Basin. During the last few years however, there are no longer any
mitigation lands available for purchase. As a result, development proposals are
preserving on-site wetlands.
In analyzing the carrying capacity of vacant land for development, soil maps and various
natural resource maps were overlaid with the Existing Land Use Map. Two issues facing
the City with regard to these factors include the flood hazard zones, which were discussed
above, and soil conditions. Map I-12 shows the results of soil suitability analysis for
building construction.
In total, roughly 13 percent of the City can be considered Vacant. Of this total, only 768
acres (9 percent of the City) is considered developable. Most of the City's vacant lands
are located between S.R. 434 and Lake Jesup. Total acreages of vacant land by Future
Land Use Category are shown in Table I-3.
6. Future Land Use and Projected Land Use Needs
Each future land use category and its corresponding acreage is listed in Table I-2. Vacant
acreage under each land use category is also summarized.
a. Residential Future Land Use Cate og ries
There are a total of 4,719 acres of residential land shown on the Future Land Use
Map included within four residential categories: Rural Residential, Low Density
Residential, Medium Density Residential, and High Density Residential. Residential
future land uses represent approximately 55 percent of the total land area in the
City. As of 2009, roughly 4,422 acres had been developed with approximately
297 vacant acres remaining. Although only 39 acres are constrained, a large
portion of the vacant developable acreage is classified as Rural Residential (129
acres) and is unlikely to densify except through an occasional lot split. Any lot
splits that do occur must be compatible with the overall neighborhood character
and surrounding density. Therefore, it is unlikely that this category of future land
use will absorb very much of the future population growth. Some infill growth can
occur within the other existing residential categories, but generally platted
•
I-57
CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN FUTURE LAND USE ELEMENT
Map I- 5: Vacant and Vacant Constrained Properties Map
•
I-58
r-~
CITY OF WINTER SPRINGS
COMPREHENSIVE PLAN
FUTURE LAND USE ELEMENT
developments have very few remaining vacant lots, unless the lot is
environmentally constrained.
The Housing Element presents an analysis of the vacant residential land uses within
the City. The element identifies a projection of anticipated dwelling units that
might be accommodated within the various land use categories. Maximum
allowable densities within the City's vacant residential land range between one
dwelling unit per gross acre for Rural Residential single-family up to 21 dwelling
units per gross acre for High Density Residential. However, the area most able to
accommodate the greatest residential growth in the City is the Town Center, which
allows up to 36 dwelling units per gross acre. The Mixed Use category can
accommodate a significant number of future residential units as well, with a density
up to 12 dwelling units per gross acre. Housing Element projections include a
certain percentage of residential uses within each category.
As of 2008, there were 13,898 dwelling units in the City. Based on the figures
provided by the Shimberg Center for Affordable Housing, a total of 20,008
dwelling units will be needed to serve the household population of the City by the
year 2030, an increase of 6,110 units over the 2008 estimate. The Shimberg
projections do not consider vacant land availability and are primarily projections
based on historical growth trends. Housing Element, Table III-14 describes more
realistic projections for the City and considers the City's vacant developable land.
Realistic projections based on vacant developable acreage indicate that the City
may accommodate approximately 3,400 more units within the City's current
boundaries. Annexation of additional land (enclaves) into the Town Center may
realize an additional 1200 units. The density factor included in these projections
and in the Housing Element is less than the maximum density allowed in each
category.
Examination of recent building permit activity for the years 2000 through 2008
indicated a strong preference for single-family housing. for approximately There
However, single family can include both attached and detached units, and during
this period, most of the single family permitted were townhomes, rather than single
family detached units. The City will continue to see a decrease in construction of
single family detached units as the City nears build-out.
Rural Residential - (up to 1 unit per gross acre). This future land use category
includes large lot single-family residences not exceeding one unit per acre.
Accessory structures and primary agricultural uses may be permitted based upon
the appropriate surrounding land uses. In recent years, the City implemented a lot
split provision to allow a simplified process for splitting large parcels in cases
where the resulting lot size would not be incompatible with the adjacent properties
and existing neighborhood.
Low Density Residential - (up to 3.5 units per gross acre). This residential category is
typically a suburban area dominated by detached single-family homes on one-
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rt r cre lots. This land use cate or is intended to be applied as a
qua e a 9 Y
transitional use to infill areas where higher density residential would conflict with
adjacent neighborhoods.
Medium Density Residential - (up to 9 units per gross acre). This urban scale medium
density residential category is intended for both single-family and multi-family
subdivisions. Typical uses may include duplexes, villas, cluster housing, townhouses,
mobile homes, manufactured homes and apartments at densities up to nine units
per acre.
High Density Residential - (up to 21 units per gross acre). This urban scale
residential category typically includes attached multi-family housing at densities up
to twenty-one units per gross acre. Typical uses would be apartments and
condominiums. This is the maximum density permitted in the City (except for the
Town Center).
Housing impacts the economic strength of a community and provides a basis for
directing the manner and type of economic development within an area. Since
housing helps determine the economic strength of a community, it will be important
to require residential densities in the Town Center that support the economic goals
of the Town Center. Currently, there is no minimum average density required of
residential development in the Town Center. Anew policy is included that
establishes a minimum average density.
With limited land available to accommodate single family homes, future housing
construction is anticipated to be predominantly multiple family. Less acreage is
required to support higher density housing patterns. New multiple family
developments will be located close to commercial retail and employment areas
and transportation corridors. Many communities allow residential density bonuses
in exchange for some attribute identified by the City as desirable. By providing a
density incentive, the developer can recoup the costs he incurs by providing the
desirable attribute. However, within the Town Center a greater density allowance
is already included by right, but largely ignored by the development community to
date.
b. Commercial Future Land Use
As part of the creation of the Town Center, aRetail/Economic Analysis was
undertaken by Gibbs Planning Group in 1998. This study indicated that the area's
residents shop outside of Winter Springs and as such there is significant leakage of
retail service restaurant, and entertainment expenditures to other retail areas. The
study also indicated that based on the potential retail/service spending patterns
of residents, the Winter Springs Town Center has the ability to support the
recommended level of additional retail development, justifying its emergence as a
distinct Town Center development within central Florida.
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In 2009, there were 123 developed commercial acres within the City. The Future
Land Use Map illustrates 301 acres within the Commercial future land use
category. Some of the City's future land use acreage has been developed as
multiple family housing, under the City's conditional use permitting process.
However, there are still 150 acres that are vacant and approximately 1 13 acres
that are developable. Within this total acreage there are 37 acres proposed as
a future County park (Jena Point Park). Once Seminole County submits for the
land use amendment, vacant developable commercial lands will drop to 76 acres.
The City is pursuing redevelopment opportunities and encouraging economic
growth. As a result of this effort, the City will allow a vertical mix of uses within
the S.R. 434 Overlay District to promote alive-work environment.
The majority of available land for development in commercial uses is included in
the future land use categories of Greeneway Interchange District (GreenWAY),
Town Center, and Mixed Use. These areas support innovative design and an
energy-efficient land use pattern of infill development. Additionally, the
GreenWAY and Town Center allow a greater commercial intensity of use than
areas designated with a Commercial future land use. Together these areas are
offering opportunities for increased diversification of the City's tax base and will
allow more Winter Springs residents to find employment opportunities close to
home. As a result, Winter Springs is well positioned to continue its current pace of
strong economic growth.
c. Mixed Use Future Land Use
The purpose for the Mixed Use land use category is to provide for a variety of
land uses and intensities within a development site to preserve conservation areas,
to reduce public investment in provision of services, to encourage flexible and
creative site design and to provide public amenities that provide an area wide
benefit to the community.
The Mixed Use land use category permits low, medium and high density
residential; commercial uses (retail and office); light industrial; educational
facilities; recreation facilities and compatible public facilities. According to the
Planned Unit Development process, the intensity of the development within the
Mixed Use category will vary depending upon location and surrounding uses.
To ensure a variety of land use types, no more than 75 percent of any one type of
land use will be permitted to dominate the site and to ensure that the Mixed Use
area is of a sufficient size to function as an integrated unit, this designation
requires a minimum of ten acres.
The Mixed Use category may be comprised of several parcels under different
ownership, as long as the parcels are approved as a unified master plan with
legal documents recorded prior to development or redevelopment that tie the
parcels together. The master plan must be submitted for approval at the time of
rezoning and may include multiple phases of development. The requirements for
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the master plan are identified in the Planned Unit Development section of the
zoning chapter of the City's Code of Ordinances.
Alternative modes of transportation are required in the Mixed Use land use
category to encourage pedestrian circulation. Tracts of land must be developed
as a whole throughout the property to provide continuity among the various land
uses and to create a compact and walkable, living environment and workplace.
Transitional uses are required to protect adjacent lower intensity and density uses
from higher uses. Building heights must be stepped down adjacent to lower
intensity and density uses.
The Future Land Use Map illustrates 141 acres within the Mixed Use Future Land
Use category, with 105 acres vacant. The majority of lands having a Mixed Use
future land use designation are located at the southeastern edge of the City at the
Oviedo Marketplace (on Dovera Drive) and 40 acres of vacant land on the north
side of S.R. 434, immediately west of the GreenWAY. Other properties having a
Mixed Use designation include several small commercial parcels on the south side
of S.R. 434- one at Heritage Park and one at Stone Gable. In both cases, the
residential portions of the Mixed Use development have been developed.
Approximately 53 acres of the remaining Mixed Use parcels are vacant
constrained, with only 52 acres anticipated to be developable.
d. Town. Center Future Land Use
The intent of the Town Center future land use category is to establish a vibrant
"downtown" area in the heart of the City, based upon traditional neighborhood
development (TND) standards which include mixed use development built on a
pedestrian scale interconnected grid of streets and blocks. The Town Center is to
be a mixed use area where people can live, work, and play.
Rather than regulate uses in the traditional reactive Euclidean method, the Town
Center future land use is based on apro-active form-based code which regulates
certain design conventions for streets, blocks, parks, and the way buildings and
other structures relate to them and to one another for the long-term. Built along
interconnected pedestrian scale street and block networks, buildings are
constructed for an adaptive progression of potential uses over their long-term life
cycle. Typical uses that are encouraged include shops, personal and business
services, grocery stores, restaurants, cinemas, hotels, offices, civic facilities, day
care, and residential.
The Town Center District allows greater diversity in housing types than other areas
of the City. Accessory dwelling units, such as garage apartments are allowed by
right and the Town Center has been identified as the area where the City's highest
density of housing is appropriate. By right, residential density can be developed
up to 36 du/gross acre. Initially, no minimum density was established, however a
policy is now included, which establishes a minimum average density per
development so that the economic goals of the Town Center can be realized. To
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date, less than one acre of land has been developed in the density range of 21.1
to 36 du~gross acre.
As previously mentioned, the Town Center is the only area within Winter Springs
which allows a vertical mix of uses by right. To date, one building has been built
which includes a vertical mix of uses. However, with the economic downturn,
development of condominium units has currently halted and developers are
returning to the detached single family unit prototype. Although a healthy mix of
housing types is appropriate for the Town Center, a higher density and intensity of
residential units is required to support the economic viability of a city center. The
Town Center is still developing into a place that feels like `a real community
belongs to this place.' There are only 250 residential units, 84,000 SF of office
.space and 165,000 SF of retail constructed to date. Public facilities include: City
Hall, Winter Springs High School, Central Winds Park, and the US Post Office.
Prior to the economic downturn, there were an additional 2040 residential units,
489,000 SF of office and 418,000 SF of retail in development review, with
another 900 residential units, 25,000 SF of office and 211,000 SF retail and 500
hotel units expected to be added to the Town Center, by build-out.
The Future Land Use Map includes 579 acres within the Town Center Future Land
Use category, of which 168 acres are vacant and developable.
e. Urban Central Business District
In 2005, the City designated an Urban Central Business District (UCBD) in 2005 to
promote pedestrian-oriented high intensity and high density in its urban core. The
boundaries of the UCBD coincide with the boundaries of the Town Center. One of
the purposes behind establishing the UCBD was the opportunity to adopt the
State's Development of Regional Impact (DRI) threshold for development, as
allowed under the Florida Administrative Code:
• 800,000 square feet of commercial retail;
• 600,000 square feet of office;
• 700 hotel units; and
• At least 700, but not more than 4,000 residential dwelling units.
f. Greenewav Interchange District (GreenWAY) Future Land Use
The purpose for the GreenWAY land use category is to set aside an area of the
City, with proximity to S.R. 417 and the interchange area on S.R. 434, to provide
employment centers for target industries and an increased tax base for the City.
The GreenWAY category was first defined in conjunction with the City's 2001
Comprehensive Plan adoption. Residential land uses are permitted only under
certain limited circumstances, such as part of a vertical mix of uses. An
appropriate application for residential would be penthouse apartments above
high rise offices. Additionally, residential is to be incidental to the other land uses
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and will not be permitted until 30% of the developable land within the GID has
been developed.
The intent of the GreenWAY designation is to:
• Provide an economic benefit in terms of employment opportunities and
increased tax base;
• Locate higher intensity uses where roadway capacity can accommodate
increased traffic due to short trip distances to major roadways and
increased lane capacity at major intersections;
• Locate higher intensity uses along major roadways and intersections to
reduce development pressures in other areas, thereby minimizing the road
congestion and community compatibility impacts.
Alternative modes of transportation are required in the GreenWAY land use
category to encourage pedestrian circulation. Tracts of land must be developed
as a whole throughout the property to provide continuity among the various land
uses and to create a compact, walkable environment.
The GreenWAY is located within the "target area" identified by Seminole County
in 2007 as the SeminoleWAY. The identified area runs north from S.R. 426 in the
City of Oviedo to Interstate 4 in the City of Sanford, following the S.R. 417
corridor. The intent of this target area is to connect to the similar "Innovation Way"
in Orange County and to attract high quality, higher income jobs to Seminole
County. A variation of Seminole County's High Intensity Planned Development
(HIP) land use is being considered by the County as the model for potential land
use changes at interchanges serving this corridor.
Target Industry Uses appropriate for the GreenWAY include:
• Financial and Information Services
o Legal Services
o Architectural Services
o Publishers
o Associations
o CPA's
o Headquarters
o Insurance
o Banks
o Telemarketing Bureaus
o Financial Transactions Processing
o Public Relations Agencies
o Credit Bureaus
o Advertising Agencies
o Consumer Lending
o Title Companies
o Computer Software and Design
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• Life Sciences
o Hospitals and Medical Education
o Diagnostic Imaging Centers
o Medical Laboratories
o Agri-science Facilities
o Outpatient Facilities
o Blood and Organ Banks
o Research Laboratories
o Nursing Care Facilities
o Veterinary Services
o Pharmaceuticals Manufacturing and Research
• Digital Media
o Motion Picture and Video Production
o Simulation and Training
o Teleproduction
o Graphic Design
o Computer Hardware/Software Design and Development
o Animation
•
• Technical and Research Services
o General Management Consulting
o Marketing
o Interior Design
o Graphic Design Services
o Human Resources and Executive Search
o Environmental Engineering and Consulting
o Precision Instruments
o Civil Engineering
o Surveying and Mapping
o Telecommunications
o Industrial Design
o Lasers and Photonics
• Other
o Long Stay Tourism
o Hotels and Lodging
o International Trade
o Sports Associated Industries
o Other "basic" businesses and industries with high annual average
wages
Source: SeminoleWAY Industry and Facility Analysis; Real Estate Research
Consultants, Inc.; May 1, 2008
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As of March 2009, no acres had been developed in the GreenWAY. The Future
Land Use Map illustrates 296 acres within the GreenWAY Future Land Use
category, of which all is vacant, but only 169 acres is anticipated to be
developable.
g. Industrial Future Land Use
The Industrial future land use category includes all industrial uses permitted under
the City's Code of Ordinances. Currently, permitted industrial uses include only
light and very light industrial uses typically connected with light manufacturing,
assembly, processing or storage of products. Additionally, the Industrial future
land use category serves as an area to locate authorized land uses and activities
which could have adverse secondary effects (e.g. increased crime; neighborhood
deterioration and blight; property devaluation; economic deterioration; health
risks; and other adverse effects) on residential areas, religious institutions, schools,
parks, day care centers, and other public institutions located within the City. Adult
entertainment establishments and sexually oriented businesses are strictly limited to
lands designated "Industrial" on the Future Land Use Map.
Light industrial uses may be located adjacent to urban scale residential land use
categories when appropriate transitioning and buffers are provided. Non-
conforming uses although not allowed to expand should be allowed to provide
appropriate transitioning and buffers to adjacent properties, especially those with
incompatible land uses.
The maximum floor area ratio for industrial uses is 0.5 FAR. Industrial Planned Unit
Developments are also permitted to have a 0.5 FAR.
Industrial lands are located predominantly on the north side of the City, along S.R.
419 and along the north side of the CSX railroad, as well as along the east side
of U.S. 17-92.
There are currently 8 acres of land developed in Industrial uses within the City. The
Future Land Use Map illustrates 126 acres with an Industrial future land use
classification. Approximately 1 /3 of this acreage is utilized in Public/Semi-Public
uses and Commercial uses. Only 7 acres of land designated as Industrial on the
future land use map are vacant and developable.
h. Public,~Semi-Public Future Land Use
The Public/Semi-Public category consists of public facilities and private non-profit.
This category includes all public structures or lands that are owned, leased, or
operated by a government entity, such as civic and community centers, public
schools, police and fire stations, and government administration buildings, except
for those located in the Town Center. These uses (such as City Hall, Winter Springs
High School, and the Post Office) have the Town Center designation. The non-
profit and semi-public uses include churches, institutions, private schools, group
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homes, emergency shelters and other similar uses, except for those located in the
Town Center and a few facilities located within strip commercial centers.
Additional uses that could be included in this category are: libraries, hospitals,
nursing homes, and cemeteries.
Although the Existing Land Use table indicates 637 acres in Public/Semi-Public
uses, there are only 508 acres with a Public/Semi-Public future land use
designation, due to some facilities being located within the Town Center
designation.
i. Recreation and Open Space Future Land Use
It is the intent of the City to provide an appropriate balance of both active and
passive recreation for the community. The quality of life for residents of Winter
Springs is not only linked to the availability of swell-maintained system of public
park and recreation facilities, but also to the quality of the natural resources they
contain. Privately managed parks, open space and facilities provide additional
components of the open space and recreational system serving City residents. As
additional parks are developed, consideration for the balance between
conservation issues and the provision of active recreation becomes an important
ingredient in the park development process.
The Recreation and Open Space Element analyzes in detail, the current and future
public park and open space needs of the City population. The Element concluded
(Recreation and Open Space Element, Table IV-1) that the City has adequate land
to meet its overall parkland adopted Level of Service (LOS) of 8 acres/1000
population through 2030. The LOS includes State and County park lands and
trails that are located within the City's jurisdictional boundaries and includes both
passive and active lands. Therefore the Cross Seminole Trail is included and Jetta
Point County Park will be included, once developed.
In addition, the City will have adequate land to meet its overall open space LOS
of 4 acres/1000 population standard through 2030, with the conveyance to the
City of the 40-acre area in the Town Center, known "wetland park".
The Existing Land Use table indicates 682 acres in Recreation and Open Space
uses and includes private facilities (such as golf courses) and school facilities.
However, the Future Land Use table includes only public facilities and does not
include recreation and open space facilities located within the Town Center, such
as Central Winds Park. In addition, some of the lands identified as Open Space
on the Existing Land Use Map have a Conservation future land use designation. As
a result, the Future Land Use Map illustrates 560 acres within the Recreation and
Open Space future land use designation.
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j. Conservation Future Land Use
The Conservation future land use category includes those lands which contain
valuable and threatened natural resources, such as flood plain, estuarine
properties, and unique ecological communities. There are several very noteworthy
areas to be considered for possible Conservation designations on the Future Land
Use Map. The majority of these areas are shown as Conservation Overlay.
Another area that may be suitable for Conservation use is along the Lake Jesup
shoreline. This area needs to be considered for Conservation use because of its
unique ecological value, for the protection of shoreline vegetation and because it
is within the 100-year flood plain.
The City should pursue grants that would enable the purchase those areas that are
desirable for permanent designation as Conservation on the Future Land Use Map,
or pursue agreements with property owners to preserve these resources.
Table I-4 indicates that 1,264 acres are within the Conservation future land use
category.
k. Conservation Overlay
•
The Conservation C+verlay area shown on the Future Land Use Map is intended to
identify lands that may potentially contain protected wildlife habitat areas, hydric
soils/wetlands, and special vegetative communities. Included within the
Conservation Overlay definition are areas within a public water well radius of
500 feet, within the 100-year floodplain, and other areas subject to environmental
or topographic constraints. The area designated as Conservation Overlay on the
FLUM is not intended to prevent development, but rather identify sensitive areas
that need to be reviewed carefully during the review process to determine
whether development should be permitted or if some form of mitigation may be
necessary. If the areas are determined not to be sensitive, then the underlying
land use development density and/or intensity will be applicable. The
Conservation Overlay includes approximately 343 acres of existing vacant land.
Vacant lands within the Conservation Overlay are designated as Vacant
Constrained on the Existing Land Use Map.
7. Redevelopment
Most housing units in the City are less than thirty years old. The older homes that were
part of the original town are in most part still occupied. As a result, few properties have
been left unattended or allowed to degrade below standard conditions.
In 2000, the City entered into a partnership arrangement with the Wyman Fields
Foundation to acquire and rehabilitate over a seven-year period, 232
apartments/townhouses around the Moss Road area. Phase I consisted of the acquisition
of 52 quadro-plex rental units in April 2000 and the rehabilitation of those 52 units for
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conversion into home ownership within atwo-year period. The 52 units located on Rhoden
Lane and Kristi Ann Court were completed and sold. However, before additional phases
of the project on Lori Ann Lane and Cory Lane could be completed, the foundation
became financially insolvent.
The City initially utilized $909,655 of the "Improvement Revenue Refunding Bonds, Series
1999" as start-up funds with the intent that the loan would be paid back to the 306
Revolving Rehabilitation Fund, as the units were sold. The intent was to recover at least
101 % of the initial investment. With the sale of these units, the City actually recovered
104% of its investment. Currently, the 306 Revolving Rehabilitation Fund has a balance
of over $1 million available for any improvement project that the City deems
appropriate, as long as the City complies with the terms of the Bond. The City should
continue pursuing the rehabilitation of deteriorating structures in the City and should
continue to partner with agencies which work to rehabilitate deteriorated housing and
neighborhoods.
Additionally, the City should hold one or ore visioning workshops to discuss specific issues
that may impede infill and redevelopment activities and identify locations, priorities and
implementation strategies for potential infill development and redevelopment. The first
workshop should include City and County Staff with familiarity of the pertinent issues and
concerns with a second workshop including property owners and tenants.
Following the visioning exercise, the City should process any needed amendments to the
Comprehensive Plan, Future Land Use Map, and/or Code of Ordinances and post the
vacant parcel map and database illustrating infill development and redevelopment
opportunities on the city's website. As part of this effort, the City should consider
providing incentives for infill development and redevelopment that support the City's
targeted program priorities.
8. Inconsistent Land Uses
Those uses, or areas which will be made non-conforming by adoption of the
Comprehensive Plan, will be precluded from either increasing the degree of non-
conformity or from development of new non-conforming uses.
The intent is to allow the continuation of those lots, structures, uses, characteristics of use, or
some combinations of these, which were lawful before adoption of the Comprehensive
Plan, until they are removed through discontinuance, abandonment, amortization, or
demolition. The terms "non-conforming" or "non-conformity" mean any lot, structure, use of
land or structure, or characteristic of any use or structure which was lawful at the time of
subdivision, site plan approval, construction, commencement, certificate of occupancy, or
certificate of use, which over time no longer complies with the Comprehensive Plan, other
applicable law, or City Code, due to a subsequent change in the Comprehensive Plan,
other applicable law, or the City Code. The City recognizes that there may be limited
and special circumstances in which non-conformities may be inconsistent with the City Code,
but not inconsistent with the Comprehensive Plan or other applicable law. In these limited
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it m tances where the overall communit and ublic policy objectives of the
and speaal c cu s Y p
City are served by the continuance of anon-conformity, the City may, hold a public
hearing and provide a special permit for the non-conformity. Such a special permit may
include the imposition of conditions or safeguards as a condition of approval.
In considering Future Land Use Map amendments, such amendments should comply with all
applicable provisions of the City's Comprehensive Plan and should not be "balanced"
among differing portions of the plan.
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Table I - 2: Future Land Use Table
Future Land Use Categories .
Maximum Density/Intartsity
'PLUM
Acreage
`Percent~of
PLUM Acreage Vacant
Constrained
Acres e*
Vacant
Developable percent' of
Developable
Acres e
Residential N A
Rural 1.0 du ross acre 984 1 1 percent 20 129 17 ercent
Low Density 3.5 du gross acre 2,556 30 percent 16 68 9 percent
Medium Densit 9.0 du gross acre 962 1 1 percent 3 bl 8 percent
High Density 21.0 du gross acre 217 3 percent 0 1 <1 percent
Commercial 0.50 FAR 301 4 ercent 37 1 13 14 percent
Mixed Use 1.0 FAR or 12.0 du gross ac 141 2 percent 53 52 7 percent
Town Center 2.0 FAR or 36.0 du gross ac 579 7 percent 87 168 22 percent
GreenWAY 1.0 FAR 296 3 ercent 127 169 22 percent
Industrial 0.50 FAR 126 1 percent 0 7 1 ercent
Public Semi-Public 0.50 FAR 508 6 ercent 0 0 -
Recreation 8~ Open Space 0.25 FAR 560 7 percent N A N A -
Conservation Not Developable 1,264 15 percent N/A N/A -
TOTAL 8,494 100 percent 343 768 100 percent
NOTES: *Vacant Constrained is derived trom the City of winter apnngs ~,onservaT~on vvenay.
SOURCE: City of Winter Springs and Planning Communities LLC, 2009
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