CocoaBeach2025ComprehensivePlanAdopted8-6-15.pdf

City of Cocoa Beach
2025 Comprehensive Plan

Adopted August 6, 2015
By Ordinance No. 1591

City of Cocoa Beach Comprehensive Plan – 2025
Goals, Objectives, and Policies (August 6, 2015)

LIST OF ELEMENTS

Context Section I Future Land Use

Natural Section II Coastal Management
Environment

Section III Conservation

Section IV Recreation and Open Space

Built Section V Housing
Environment

Section VI Public School Facilities

Section VII Infrastructure (formerly known as Sanitary Sewer,
Solid Waste, Stormwater Management, Potable
Water, Natural Groundwater, and Aquifer
Recharge

Section VIII Mobility

Implementation Section IX Capital Improvements

Section X Intergovernmental Coordination

CITY OF COCOA BEACH
2025 COMPREHENSIVE PLAN

Section I
Future Land Use Element

Goals, Objectives, and Policies

Adopted August 6, 2015 by Ordinance No. 1591

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I – FUTURE LAND USE ELEMENT
Table of Contents

Page Number
INTRODUCTION 1

GOALS, OBJECTIVES, AND POLICIES
Goal I Balance of Land Uses 4
Objective I-1 4
Objective I-2 5
Objective I-3 6
Objective I-4 6
Objective I-5 7
Objective I-6 9
Objective I-7 9
Objective I-8 10
Objective I-9 10
Objective I-10 11

Goal II Preserve Established Residential Neighborhoods 13
Objective II-1 13
Objective II-2 13
Objective II-3 17

Goal III Support Downtown Redevelopment 18
Objective III-1 18
Objective III-2 19
Objective III-3 20

Goal IV Encourage Redevelopment in Beach Gateway and North

Cocoa Beach Areas 22
Objective IV-1 22

Goal V Ensure Adequate Infrastructure for Future Development 23

Objective V-1 23

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I – FUTURE LAND USE ELEMENT
Table of Contents (continued)

MAPS Page Number

FLUE Map 1 Existing Land Use (2015) 26
FLUE Map 2 Future Land Use (2025) 27
FLUE Map 3 Downtown Area (2025) 28
FLUE Map 4 Downtown Area Neighborhood Districts (2025) 29
FLUE Map 5 Downtown Area Street Hierarchy (2025) 30
FLUE Map 6 Downtown Area Mixed Use Area (2025) 31
FLUE Map 7 Wetlands Map (2015) 32
FLUE Map 8 Beach Access, Shores Map and Estuarine System (2015) 33

TABLES
Table 1 Description of Land Uses and Intensities 34

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INTRODUCTION

The Future Land Use Element (FLUE) designates “proposed future general distribution, location,
and extent of the uses of land for residential uses, commercial uses, industry, agriculture,
recreation, conservation, education, public facilities, and other categories of the public and
private uses of land,” Section 163.3177(6)(a), Florida Statutes. In addition, acreage and general
ranges of density and intensity need to be provided along with establishing a long term vision of
future land uses. This element must define the land uses (based on supporting data and
analysis), specify criteria for making land use decisions, include provisions that will discourage
urban sprawl, and include a map series that supports the FLUE.

The Preamble of the City of Cocoa Beach Charter states that the City and its government shall
use its powers for the “…establishment of a low-density residential and family-oriented resort
community with paramount consideration given to the health, safety, welfare, comfort and
quality of life for all its citizens.” Given this direction, the City of Cocoa Beach is characterized
as a residential community with a mixture of single-family residences, retail commercial, mid-
rise multi-family dwellings, resort uses, and abundant recreational and natural resources.
Located within Brevard County, Florida, the City is a coastal community located on the
outermost barrier island known as the Cape Canaveral Peninsula.

The City is generally bounded by: the sandy beaches of the Atlantic Ocean (to the east), the
low-lying mangrove islands of the Banana River Lagoon (to the west), unincorporated Brevard
County and the City of Cape Canaveral (to the north), and unincorporated Brevard County and
Patrick Air Force Base (to the south). The Kennedy Space Center and the Cape Canaveral Air
Force Station are located immediately north and northwest of Cape Canaveral. Low-density
residential uses are segregated from intense uses, and are located adjacent to the Banana River
Lagoon or at the southern end of the City. Moderate density multi-family uses serve, in many
areas, as a buffer from the intensity and impacts generated by SR A1A. High-density residential
uses, hotels and tourist commercial uses are concentrated along the ocean. General
commercial and retail uses are immediately contiguous to SR A1A and SR 520. The City’s
existing land uses are depicted in FLUE Map 1 and the anticipated future land uses are shown in
FLUE Map 2. A series of maps included in the Supporting Data and Analysis for the Future Land
Use Element identifies the City’s natural assets and other community features.

Changing Conditions
The City had experienced growth in its permanent population over the years with the growth
rate slowing in recent decades. By the 2010 census the Cocoa Beach’s permanent population
decreased from 12,482 in 2000 to 11,231 in 2010. Similarly, average household size in the City
fell to 1.88 persons in 2010 from 1.91 persons in 2000. Offsetting this decline is a steady influx
of seasonal winter visitors as well as tourists visiting this coastal resort community throughout
the year. This annual fluctuation of population (about 4,000 seasonal residents and about

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3,200 average daily tourists) is the most critical demographic condition affecting demands on
public facilities, services, and land uses, and requires that systems be designed to handle
recurring seasonal demands in addition to the demands of the City’s permanent population.

There are approximately 74 acres (2.8%) of vacant land in the City, which can accommodate
limited new residential and commercial development. Based on the declines in the population
for the past several decades, with further projected population declines predicted, paired with
maximum allowable densities for single-family and multi-family residential uses, and the
amount of vacant land in each of these land use categories, the City has sufficient vacant land
to meet the need for single-family and multi-family housing units for the City’s permanent and
seasonal population through the year 2025. At this time, the City appears to have sufficient
commercial, recreational and institutional uses to meet the City’s needs through the year 2025.

Supporting Infrastructure
Most of the structures in the City were constructed in the 1960’s and 1970’s. There are no
significant concentrations of slum or blighted residential areas. There are a small number of
individual structures and small areas that are in need of rehabilitation or maintenance. The
City’s Development Services Department, through adopted code enforcement procedures,
continues to identify those residential structures needing improvement and works toward
taking corrective actions. The City adopted a Stormwater Management Plan in 2001 and is
currently in the process of implementing it and using it to define future capital improvements.

The City’s infrastructure and service facilities are operating at acceptable levels of service;
however, there are concerns with the roadway network, which consists primarily of two
principle arterial roadways (SR A1A and SR 520). These two roads are operating near the
adopted capacity. The City has developed an analysis of the roadway system that indicates
methods of improving the level of service through system improvements, and the use of
alternative modes of travel and strategies are described in the Mobility Element GOPs.

Redevelopment Focus
Given this setting, Cocoa Beach has reached a built out condition and recognizes that future
growth will occur through redeveloping existing properties rather than developing vacant
parcels. Generally, the condition of commercial and residential property in the City remains
relatively healthy. Most properties are well maintained; however, several commercial
properties (particularly in the Downtown Area) appear dated and in need of aesthetic
enhancement.

Three corridors have been identified to accommodate future redevelopment: Downtown
Cocoa Beach, the Gateways District (centered on the SR 520/SR A1A intersection), and the
north Cocoa Beach area (north of California Avenue); listed in of priority. In recent years,
the City has focused on Downtown. In 2006, the City adopted the Downtown Cocoa Beach Area
Sector Plan, which identified key issues and outlined action steps. This work provided the

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foundation for creating the Downtown Cocoa Beach Community Redevelopment Agency
(DCBCRA) in 2009. The Downtown Redevelopment Plan was completed and adopted in 2012,
which guides the CRA in making future Downtown decisions. To provide more specifics about
the physical look of Downtown, the Downtown Design Standards have been adopted. The
Downtown Area is positioned to attract future redevelopment activities while respecting the
surrounding residential neighborhoods.

With the Downtown area plan completed, the City focused on the Gateways District. In 2014,
the Dover Kohl & Partners completed the “Gateways Master Plan” for the S.R. 520/S.R. A1A
corridor area, which is the location of the highest concentration of commercial uses in the City,
as well as the primary location for visitors and tourists to visit when they come to Cocoa Beach.
This Plan has provided some development recommendations for new development and
redevelopment of these state highways as well as the commercial properties which abut them.
This plan was adopted by the City Commission in 2014, with instructions from the City
Commission to City Staff to implement these recommendations into this current update of the
Comp Plan, and the not-too-distant rewrite of the Land Development Code (LDC) in 2015. It is
the desire of the City to create overlay districts, which can specifically target this commercial
area and possibly other concentrations of commercial and high-density residential/resort areas,
through the future rewrite of the LDC, to bring these recommendations from the plan to
fruition, through future development and/or redevelopment of these areas, while leaving the
lower density residential areas as they are. A similar planning activity has yet to be completed
for the north Cocoa Beach area.

Future Comprehensive Plan Amendments
Before adoption of future comprehensive plan amendments, consult City Charter Section 6.07
(charter voting requirements on comprehensive plan amendments).

Format
The following Future Land Use goals, objectives, and policies are consistent with the Supporting
Data and Analysis that has been compiled for the FLUE, reflecting the City’s desire to: achieve a
balance of compatible land use, preserve natural assets, protect established low-density
neighborhoods, encourage a vibrant Downtown and the supporting mixed use areas (Gateways
District and North Cocoa Beach), and ensure that supporting land use regulations are in place.
All five goals are important to the City of Cocoa Beach; therefore, no one goal has priority over
the others. Data, maps, and other background information supporting the FLUE’s goals,
objectives, and policies are located in the FLUE’s Supporting Data and Analysis.

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GOAL I To achieve and maintain a balance of land uses with
paramount consideration given to the health, comfort, well-
being, and quality of life for all citizens.

Objective I.1 Effective upon the adoption of this Comprehensive Plan, the City of
Cocoa Beach will review, and amend as needed, the Land Development
Code (LDC) so that future land uses are consistent with existing land
uses, appropriate topography, and soil conditions.

Policy I.1.1 The 2025 Future Land Use Map series documents the City’s existing and

future conditions, covering land use, natural features, schools, and
Downtown Cocoa Beach. FLUE Map 1 (Existing Land Use) and FLUE Map
2 (Future Land Use), FLUE Map 7 (Wetlands), and FLUE Map 8 (Beach
Access, Shores Map and Estuarine System) are included in this element.
The Downtown maps are provided in the Supporting Data and Analysis
for the Future Land Use Element.

(a) FLUE 1 – Existing Land Use (2015)
(b) FLUE 2 – Future Land Use (2025)
(c) FLUE 3 – Downtown Area (2025)
(d) FLUE 4 – Downtown Area Neighborhood Districts (2025)
(e) FLUE 5 – Downtown Area Street Hierarchy (2025)
(f) FLUE 6 – Downtown Area Mixed Use Area (2025)
(g) FLUE 7 – Wetlands Map (2015)
(h) FLUE 8 – Beach Access, Shores Map and Estuarine System (2015)

Policy I.1.2 Table 1 establishes the future land use categories and describes the

consistency between the City’s Future Land Use Map (FLUE Map 2) and
the Official Zoning Map (Article II of Chapter II, Cocoa Beach Land
Development Code). Uses of land and implementing regulations shall be
consistent with the intensities and densities of the uses identified on
2025 FLUE Map 2. Additional zoning classifications or other modifications
to the permitted uses identified in the City’s LDC shall be consistent with
those identified in this table.

Policy I.1.3 The type, intensity and structural design of any development shall be

appropriate to the existing natural topography. Site alterations shall be
limited to the absolute minimum necessary to develop a site safely.

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Policy I.1.4 Higher density and intensity development shall be directed into those
locations which have proper access to the existing transportation system,
minimal environmental constraints, sufficient stormwater treatment
capacity, compatible land uses, and readily available sewer and water
infrastructure.

Policy I.1.5 Consistent with the Capital Improvements Element, issuance of a

development will be based on whether there is sufficient facility
capacity to accommodate the impacts of the development and maintain
all applicable LOS standards, as adopted by the City.

Policy I.1.6 No development or permit shall be issued until the City determines

that public facilities and services necessary to accommodate the impacts
of the development will be available concurrent with the impacts of the
development pursuant to Florida Statutes and the Florida Administrative
Code.

Objective I.2 The City of Cocoa Beach shall, upon adoption of this Comprehensive

Plan, establish policies and implementation strategies that support the
existing compact built environment.

Policy I.2.1 The City shall support the efforts of the State Legislature to foster

innovative planning in to maximize existing facilities and services
through redevelopment and the revitalization of targeted areas.

Policy I.2.2 The City recognizes that, because the City is built-out and bounded by

water to the east and west, and by developed urban areas to the north
and south, urban sprawl is unlikely to occur.

Policy I.2.3 All new development within the City of Cocoa Beach shall be required to

connect to and be served by central water, sewer, solid waste and
stormwater management facilities, which supports a compact

development pattern and discourages urban sprawl.

Policy I.2.4 No new permits for septic tanks or package treatment plants within the

City limits shall be approved. In areas served by central sanitary sewer
facilities where property owners choose to remain on existing septic
tanks, no permits shall be issued for repairs to septic tanks.

Policy I.2.5 New development or redevelopment shall be charged the full cost of

extending water, sewer, solid waste and stormwater management

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facilities and services to their project in areas where existing facilities do
not exist.

Objective I.3 To encourage the use of innovative land development regulations that

may include provisions for planned unit developments and other mixed
use development techniques.

Policy I.3.1 The City Commission, based on recommendations from the Development

Services Department and the Local Planning Agency, shall review and
amend as needed its LDC to include detailed provisions for Planned Unit
Developments (PUD’s) or a Mixed Use designation. These regulations are
to encourage creative and innovative planning by providing flexibility to
the strict zoning and development regulations in a manner that is
consistent with this and other elements of the Comprehensive Plan.

The City will adopt these regulations if it can be shown that the following
benefits will result:
(a) Incentives to provide affordable housing;
(b) Transfer of density from environmentally sensitive areas;
(c) Improved aesthetic appearance of the man-made environment
and protection/preservation of the natural environment
(d) Additional open space, buffers and preservation zones; and
(e) Additional recreational facilities in excess of adopted standards

Objective I.4 To maintain or improve the current quality of natural and historic
resources.

Policy I.4.1 Through the Conservation Element policies, the City shall protect air

quality; water resources and water quality; native vegetative
communities, wildlife, and wildlife habitat; the natural functions of soils,
floodplains, and wetlands.

Policy I.4.2 Through the Coastal Management Element policies, the City shall protect

coastal resources and estuarine resources.

Policy I.4.3 Development within areas subject to 100-year flooding due to soil

conditions or hydrology shall not increase expected flood levels for
adjacent properties or reduce receiving surface water body quality below
established levels.

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Policy I.4.4 The City may require clustering of residential units on the non-
environmentally significant portions of parcels where environmental
concerns exist elsewhere on the site.

Policy I.4.5 There are no currently identified archaeological or historic properties

within the City that either qualify for, or are listed on, the National
Register of Historic Places. Should such properties be identified, the City
shall maintain an inventory and an evaluation of all archaeological and
historic properties that appear to qualify for the National Register of
Historic Places. Should a future property be considered for eligibility in
the National Register of Historic Places, the City shall consult with, and
require the applicant to coordinate with the State’s Division of Historical
Resources prior to any land clearing, ground disturbing or rehabilitation
activities taking place.

Objective I.5 To encourage the elimination or reduction of uses inconsistent with the

community’s character and future land uses.

Policy 1.5.1 The City shall coordinate with adjacent local governments and Brevard

County to ensure consistency and compatibility in coordinating land uses.

Policy I.5.2 Existing land uses that are inconsistent with the Comprehensive Plan may

be reviewed by the City at the request of the property owner to
determine the degree of inconsistencies, as described in the City’s LDC.
Such review may result in:

(a) A determination that the impact of the inconsistencies on

surrounding consistent uses is minimal and not detrimental to the
public health, safety and welfare. As a result, status of
development as to its consistency with the comp plan may be
waived;

(b) A determination that the impact of the inconsistencies may be
substantially mitigated, in which the development may attain
consistent status by implementing the required mitigation
measures; and

(c) A determination that the inconsistencies have substantial
impacts, which may not be mitigated. As such, the development
shall remain an inconsistent use and such use shall terminate
according to law.

Policy I.5.3 The City shall protect existing residential areas from encroachment by

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incompatible commercial and high-density residential uses by imposing
limitations that are specified in the City’s LDC.

Policy I.5.4 The City shall prohibit residential development where physical

constraints or hazards exist, or shall require the density to be adjusted
accordingly. Such constraints or hazards shall include, but not be limited
to, floods, storm or slope hazards, and unstable soil or geologic
conditions.

Policy I.5.5 Existing inconsistent land uses damaged in excess of 50% of their

replacement value by natural or man-made causes shall not be allowed
to rebuild in a manner that is inconsistent to the plan or LDC.

Policy I.5.6 Existing inconsistent uses shall not be re-established if the use or activity

has ceased for a period of six months consecutively or eighteen months
over a twenty-four month period.

Policy I.5.7 Additions or expansions to inconsistent uses shall not be permitted.

Policy I.5.8 The City will continue to disallow industrial uses and commercial

automobile sales within the City limits.

Policy I.5.9 The development of new transient lodging facilities is prohibited on the

west side of SR A1A South of SR 520 (Atlantic Avenue north of the one-
way pairs; Atlantic Avenue south of the split into one-way pairs) and on
the west side of Ocean Beach Boulevard/Ridgewood Avenue North of SR
520 as specified in the City’s LDC. Existing transient lodging located on
the west side of SR A1A shall be allowed to continue and operate at the
density and intensity of use at the time February 2000. Regulations will
include provisions for reconstruction of destroyed, damaged, or
deteriorated transient lodging establishments located west of SR A1A, as
well as provisions for elimination of transient lodging establishments if
such use is abandoned. The prohibitions for new transient lodging
facilities shall not apply to the Downtown Area as described in Future
Land Use Element Objective III.1, providing the transient lodging will be
located on lands with a General Commercial or High Density Residential &
Tourist Future Land Use designation, is located within the Downtown
Area Mixed Use Area (FLUE Map 6), and the lodging use has been
authorized by a Special Development Overlay District zoning map
approval.

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Objective I.6 To ensure that coastal planning area population densities are consistent

with the appropriate regional hurricane evacuation plan for the
purposes of achieving an evacuation time of 18.5 hours.

Policy I.6.1 Development s or permits for new development or redevelopment

shall not be issued if the proposed development or redevelopment will
increase the amount of time required to evacuate the City in the event of
an approaching hurricane to more than 18.5 hours.

Policy I.6.2 To protect existing residential areas and ensure safe hurricane evacuation

times, the City shall limit maximum allowable residential density
consistent with and in furtherance of the provisions of this Element.

Policy I.6.3 The Planning Board with assistance from the Development Services staff

shall on an on-going basis review and update the accessory uses allowed
within the individual zoning districts. Accessory uses are uses
subordinate or incidental to the primary use, and cannot operate without
the primary use. Accessory uses must be compatible with the primary
use and the adjacent primary uses. A use deemed to be a “prohibited
use” by the City’s zoning ordinance also shall never be permitted as an
accessory use.

Objective I.7 Encourage the elimination or reduction of uses that are inconsistent

with any interagency hazard mitigation report recommendations that
the local government determines to be appropriate.

Policy I.7.1 Development s or permits for new development or redevelopment

within the 100-year floodplain or coastal high hazard area (CHHA) shall
be issued only after a finding that the proposed development or
redevelopment complies with the building elevation requirements
established on the Flood Insurance Rate Maps (FIRM’s).

Policy I.7.2 Development s or permits for new development or redevelopment

seaward of the coastal construction control line (CCCL) shall be issued
only after a finding that the proposed development or redevelopment
has been approved by the Florida Department of Environmental

Protection (FDEP), and that the proposed project complies with any
reasonable condition imposed by FDEP.

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Policy I.7.3 Structures receiving damage from coastal storms or flooding that is less
than 50% of their replacement cost at the time of the damage may be
rebuilt to its pre-disaster condition, subject only to current building and
life-safety codes.

Policy I.7.4 Structures receiving damage from coastal storms or flooding in excess of

50% of their replacement cost at the time of the damage may be rebuilt
to their original square footage and density, provided they comply with:
(a) Federal requirements for elevation above the base flood

elevation;
(b) Building code requirements for flood-proofing;
(c) Current building and life-safety codes; and
(d) FDEP’s CCCL requirements.

Objective I.8 To ensure the availability of suitable land for utility facilities necessary
to support proposed development.

Policy I.8.1 The City shall acquire or require sufficient right-of-way in all roadway

construction or improvement projects to provide for the location of
utility lines.

Policy I.8.2 Public and private utility facilities that support land development shall be

authorized at the time of a development or permit, and
construction shall be timed so the required facilities and services will be
available concurrent with the impacts of development.

Objective I.9 The City of Cocoa Beach shall maintain and/or secure the appropriate

Department of Environmental Protection Permits to ensure the
availability of dredge spoil disposal sites for the purpose of maintaining
City-owned and adjacent intercoastal waterways through the clearing
of detrimental muck sediments to benefit navigation, water quality and
habitat.

Policy I.9.1 The City shall coordinate with Brevard County, other beachside

communities, and the Florida Inland Navigation District (FIND) to identify
appropriate spoil disposal sites.

Policy I.9.2 The City shall identify existing and future dredge spoil site areas.

Policy I.9.3 New dredge spoil disposal sites shall be selected in a manner that is

consistent with and ensures compliance with the conservation and

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natural resource protection provisions contained in the Comprehensive
Plan.

Policy I.9.4 The City may use the appropriate State specified forum to discuss and

resolve multi-jurisdictional problems and issues regarding the designation
of appropriate spoil disposal sites.

Objective I.10 To promote the ly and responsible siting of future educational

facilities and services near urban residential areas and the collocation of
public and educational facilities.

Policy I.10.1 The Brevard County School Board determines the need for new public

schools. It is expected that there will be no new public schools needed or
constructed within the City of Cocoa Beach through 2025. Should there
be a need for new facilities, all schools shall be located consistent with all
elements of …