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Leon County
Board of County Commissioners Agenda Item#25 December 9, 2025 |
| To: | Honorable Chairman and Members of the Board |
| From: | Vincent S. Long, County Administrator |
| Title: | Adoption Public Hearing on the Comprehensive Plan Update |
| Review and Approval: | Vincent S. Long, County Administrator |
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Department/Division Review and Approval: |
Ken Morris, Assistant County Administrator Nawfal Ezzagaghi, Assistant County Administrator Artie White, Director, Planning, Land Management & Community Enhancement (PLACE) Mike Alfano, Director, Planning |
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Lead Staff/ Project Team: |
Susan Poplin, Administrator of Comprehensive Planning Tyler Maldonado, Principal Planner Adam Moran, Planner II Ed Young, GIS Coordinator |
Statement of Issue:
This item requests the Board conduct the adoption public hearing and adopt an ordinance amending the Land Use and Mobility Elements of the 2030 Tallahassee-Leon County Comprehensive Plan (Attachment #1) pursuant to Section 163.3184, Florida Statutes (F.S.). If adopted by both the Board and City Commission, the current Land Use Element and Mobility Element will be replaced by the proposed Land Use and Mobility Element.
Fiscal Impact:
None.
Staff Recommendation:
Option #1: Conduct the adoption public hearing and adopt the proposed ordinance (Attachment #1), thereby adopting the proposed Land Use and Mobility Element and Glossary revisions to the Tallahassee-Leon County Comprehensive Plan, subject to the City Commission’s adoption of the proposed amendments in accordance with Policy 1.8.1 of the Intergovernmental Coordination Element.
Report and Discussion
Background:
At its November 18, 2025, meeting, the Board accepted a status report on the proposed Land Use and Mobility Element (LME), provided policy direction for specific updates to the proposed LME, and directed staff to schedule the adoption public hearing on the proposed LME for December 9, 2025. The item requests the Board conduct the adoption public hearing and adopt an ordinance (Attachment #1) amending the existing Land Use and Mobility Elements of the 2030 Tallahassee-Leon County Comprehensive Plan with the proposed LME, subject to the City Commission also adopting the proposed amendments in accordance with Policy 1.8.1 of the Intergovernmental Coordination Element. The adoption hearing for the City Commission is scheduled for December 10, 2025.
This item advances the following FY 2022 – FY 2026 Strategic Initiatives:
These particular Strategic Initiatives align with the Board’s Environment and Governance Strategic Priorities:
The Board and City Commission initiated an update to the Tallahassee-Leon County Comprehensive Plan (Plan), beginning with the Land Use and Mobility Elements—Comprehensive Plan Elements that guide future growth, development, and transportation planning. Launched in late 2022, the current effort to revise the Plan reflects current conditions, complies with statutory requirements, and aligns with the community’s long-term vision based on extensive public engagement.
On February 25, 2025, the Board and City Commission held a Joint Workshop to review draft goals and objectives and provided policy direction for the proposed LME. Feedback from both Commissions was used to refine the draft documents in preparation for formal review.
The Tallahassee-Leon County Local Planning Agency (LPA) held a public hearing on April 1, 2025, following several work sessions to review the proposed LME. The LPA voted to recommend transmittal of the proposed LME to the Board and City Commission.
At its May 13, 2025, meeting, the Board held the Transmittal Public Hearing and voted to transmit the proposed LME and supporting data analysis to the State Land Planning Agency (Florida Commerce) and other state and regional review agencies for the 30-day review period pursuant to Section 163.3184, F.S.
During this same period, the City Commission considered the companion transmittal on June 11, 2025. In response to citizen concerns regarding residential density, neighborhood compatibility, and growth patterns, the City Commission deferred transmittal and directed staff to conduct additional community engagement before proceeding.
Subsequently, at its July 8, 2025 meeting, the Board directed staff to undertake additional public engagement focused on the proposed LMEs, to compile and summarize community feedback, and to return to the Board with a status report, policy recommendations, and a revised project schedule for consideration prior to adoption.
While the County’s engagement process was underway, the City continued its review of the proposed LME. In response to community concerns about the proposed Urban and Sub-Urban Residential Preservation Future Land Use Categories (FLUCs), the City held a community meeting on August 18, 2025, attended by representatives from numerous neighborhood associations. Based on feedback from that meeting, the City Commission voted on August 20, 2025, to retain the existing Residential Preservation FLUC with revisions to address legally established nonconforming uses. The City Commission then held its Transmittal Hearing on September 17, 2025, and voted to transmit the proposed LME—incorporating the updated Residential Preservation policies—to the State Land Planning Agency and review agencies.
The Board received a status update on November 18, 2025, that provided a thorough summary of the input received through the Board-directed community engagement. At that meeting, the Board provided policy direction to staff on specific updates to the proposed LME. Additionally, the Board directed staff to schedule the adoption public hearing for December 9, 2025. This item provides a proposed ordinance (Attachment #1) for Board consideration for the adoption public hearing. This item recommends that the Board approve the adoption of the proposed Ordinance to amend the Land Use and Mobility Elements and revise the Plan’s Glossary (Option #1).
Policy 1.8.1 of the Intergovernmental Coordination Element of the Tallahassee-Leon County Comprehensive Plan requires approval by both the Board and the City Commission for text amendments, including amendments to the Urban Services Area (USA), to become effective.
Should the Board approve the adoption of the proposed LME (Option #1), and the City Commission also approves adoption of the proposed LME at its adoption public hearing, the adopted LME and related Glossary update will again be submitted to the Florida Department of Commerce and commenting agencies for a compliance review. The proposed LME would become effective 31 days after the State Land Planning Agency notifies the local governments that the plan amendment package is complete.
Analysis:
The proposed Land Use and Mobility (LME) Goals, Objectives, and Policies (Attachment #1) provide a roadmap for what the Tallahassee-Leon County community will look like in the future with the population growth projected between today and 2050.
Purpose of the Comprehensive Plan and Relationship to Land Development Codes
The Tallahassee-Leon County Comprehensive Plan is intended to express the community’s plan for how growth and development occur in the City of Tallahassee and Leon County. The current Comprehensive Plan includes Goals, Objectives, and Policies regarding how land is developed to accommodate projected population growth, how infrastructure is planned and provided to support anticipated growth, how natural features are protected, and how various other factors that promote a high quality of life are addressed in the community. The Comprehensive Plan also includes the land use plan that reflects assigned future land use designations on a Future Land Use Map (FLUM). The Plan gives direction to programs and activities, and to regulation through land development codes, including zoning districts. When the update is completed, an assessment of the existing land development codes is needed to ensure that they implement the intent of the Comprehensive Plan including the FLUM and remain consistent with the Comprehensive Plan.
Implementation of the FLUM Through Zoning
Zoning districts defined in the City and County’s respective Land Development Codes and reflected on the respective City and County official zoning maps implement the FLUM. In some cases, a Future Land Use Category (FLUC) is implemented by only one or two zoning districts. For example, the Urban Fringe FLUC is implemented by the Urban Fringe zoning district, the Recreation and Open Space zoning district, or a Planned Unit Development. In other cases, a FLUC may be implemented by numerous zoning districts. For example, the Suburban FLUC can be implemented by twenty-two different zoning districts. The zoning districts that implement the Suburban FLUC range from Residential Acre (RA) allowing up to one unit per acre to Medium Density Residential (MR) allowing up to 16 units per acre and from Neighborhood Commercial (C-1) allowing up to 12,500 square feet of commercial development per acre to Medical Arts Commercial (CM) allowing up to 80,000 square feet per acre. The current effort to update the FLUM does not change the current zoning designation of any property and allows existing districts to remain in place. Future zoning changes will continue to be assessed as required by the Comprehensive Plan and the land development codes.
Public Engagement
Public engagement for the LME Update was extensive, with opportunities for participation provided at multiple stages of the project. Attachment #2, Comprehensive Plan Update Project History, documents this process and outlines the various points at which the community was invited to provide input. Building on these earlier efforts, the consultant team conducted additional outreach activities tailored to the project’s needs, which included the following:
In addition to the consultant-led outreach, the Planning Department conducted further public engagement to gather input from community members and organizations on the draft LME Goals, Objectives, and Policies. Feedback was collected through public surveys and comments submitted directly to staff, and is summarized in Attachment #3, Public Comment. This input was reviewed and incorporated where it aligned with community values, data analysis, other elements of the Comprehensive Plan, applicable state statutes, and the overall purpose of the Plan. Comments deemed more appropriate for implementation through the land development code have been set aside for consideration during future updates to that code.
Data Analysis
The proposed Comprehensive Plan update must be supported by appropriate data and analysis, as required by state law. Sections 163.3177(6)(a) and (b), Florida Statutes, specify minimum requirements, including population projections; existing land uses and natural resources; the availability of public facilities and services; transportation circulation; and projected transportation levels of service. Business Impact Estimates (BIEs) for both the City and the County were also completed as required and are included as Attachment #4. These BIEs are available on the respective City and County websites. All supporting data and analyses for the Comprehensive Plan update are publicly accessible at: https://www.compplantlc.com/pages/dataandanalysis.
Housing Needs Assessment:
As part of the required data and analysis supporting the Comprehensive Plan update, an evaluation of future housing needs was completed to assess whether projected growth can be supported by existing and anticipated housing supply. This analysis identifies the additional housing units likely to be required through 2050 and examines current market conditions to understand existing shortages and pressures.
Projected population growth in Leon County is expected to create demand for approximately 23,000 additional housing units by 2050. This estimate reflects the projected addition of roughly 41,500 residents over the next 25 years, calculated using the county’s average household size (2.28 persons) and a standard housing multiplier (1.25).
The local housing market is already experiencing supply pressures. As of July 2025, Tallahassee and Leon County have an estimated housing supply of 3.8 months. Although this represents an improvement from the pandemic period—when supply dropped below three months—it remains below the six-month supply that the National Association of Realtors identifies as a balanced market. Markets operating below this threshold typically experience faster price increases.
Beyond overall supply constraints, specific housing types face additional shortages. The Florida Apartment Association reports a deficit of 2,825 apartment units across all income levels in the Tallahassee Metro Area. Analyses by the University of Florida’s Shimberg Center further indicate a shortfall of 7,855 affordable rental units for households earning less than 50 percent of the area median income.
Meeting this future housing demand depends on the amount and type of land available for development within the Urban Services Area (USA). The following section reviews current land capacity and considerations related to potential USA adjustments.
Growth in the USA – which is approximately 107,498 acres- will predominantly be accommodated on larger, undeveloped parcels such as the Colin English property and Welaunee Critical Planning Area Plan areas. As shown in Attachment #5, approximately 65% of the acreage inside the Urban Services Area (USA) is identified as low-density residential and, as such, has limited infill development and redevelopment potential. Additionally, parcels identified as vacant on Attachment #5 do not inherently mean that they are available or that they are not constrained by environmental features or other factors that limit development.
Given the high percentage of land within the Urban Services Area (USA) designated for low-density uses—and the limited number of parcels that are both vacant and developable—an expansion of the USA is warranted to accommodate projected growth. The proposed changes add approximately 3,800 acres (and remove approximately 1000 acres, mainly in public areas such as the national Forest) for a net increase of approximately 2,800 acres. This expansion serves to align the USA boundary with property lines, transportation corridors, and geographic features, rather than bisecting individual properties. The expansion also includes areas adjacent to existing or planned developments, such as Southwood on the south side and the area north of Bannerman Road (east of North Meridian Road), where subdivision of land has already occurred.
As shown on the proposed Future Land Use Map (FLUM), properties within the proposed expansion generally retain their existing allowable densities, intensities, and uses. In one instance, properties included in the expansion are designated as Planned Development, which will require approval of a Master Plan prior to any development. The USA concept continues to be applied in the proposed LME to direct growth to appropriate areas and to ensure that development is supported by planned services.
Planned Development Master Plans
Areas designated as Planned Development on the FLUM require the adoption of a Master Plan before any development may occur. Adopted policies in the Land Use Element state that “a Planned Development Master Plan shall be adopted as an area plan that is consistent with, but independent of the Comprehensive Plan.” In keeping with this principle, the proposed LME removes the adopted Southeast Sector Plan and Welaunee Critical Area Plan from the Comprehensive Plan. Both the Southeast Sector Plan and the Welaunee Critical Area Plan remain adopted Master Plans with no changes proposed. Changes to these Master Plans will still require a public process with relevant Board or City Commission approval, and any future development within these areas must be consistent with the appropriate master plan.
The Southeast Sector Plan and Welaunee Critical Area Plan are included in Attachment #6. To support this structure, language has been added to the Planned Development FLUC to reiterate that these Master Plans remain the Master Plans for these areas, as well as indicating that the Capital Circle Office Complex Planned Unit Development serves as the Master Plan for that specific Planned Development area.
Statutory Requirements
The proposed LME replaces the existing separate Future Land Use Element and Mobility Element of the Comprehensive Plan. As such, the proposed LME must meet both the requirements of Section 163.3177(6)(a), F.S., for Land Use, and (6)(b) for Transportation. Attachment #7 provides a comprehensive review demonstrating how the proposed Goals, Objectives, and Policies satisfy both sets of statutory requirements and maintain internal consistency within the Comprehensive Plan.
Comprehensive Plans must also be internally consistent across all elements. Attachment #8 illustrates how the Goals, Objectives, and Policies in the currently adopted Land Use and Mobility Elements relate to those proposed in the LME, offering a clear crosswalk between the existing structure and the updated framework.
Section 163.3177, F.S., identifies requirements for a map series. Attachment #9 presents the required map series with Natural and Historic Resources as well as Mobility Maps. As required by statute, these maps include surface waters, wetlands, flood zones, soils, historic district boundaries, potable water wells, transportation concurrency management areas, and the transportation system. Based on comments from Florida Commerce on the transmittal packages submitted for review following the Board’s and the City Commission’s transmittal hearings, the map series was updated as described in more detail below.
Glossary Updates
Attachment #10 includes new and revised terms to add to the Comprehensive Plan Glossary. The proposed amendment also removes outdated terms from the Glossary that are not used in any Element of the Comprehensive Plan.
Previous Direction from the Board and City Commission
At the February 25, 2025, Joint Workshop with the Board and City Commission, the Commissioners provided direction for the following to be addressed in the draft LME:
Based on the direction from the Board and City Commission, the following components are included in the Draft Goals, Objectives, and Policies:
Incentivizing development on major roadways and gateways: The proposed FLUM incorporates higher density and intensity land uses along major corridors. Additionally, proposed Policy 2.6.2 specifically addresses Gateway corridors, including South Monroe, North Monroe, and the West Pensacola Street corridors. Proposed Policy 1.2.4 also aims to enhance gateway corridors through access management, preserved green space for landscaping, and consolidated signage.
Non-conforming uses in the Lake Protection FLUC: The Lake Protection FLUC (Policy 2.8.7) includes a provision that allows uses that are compatible with surrounding area and meets water quality standards for the Lake Jackson Basin to be considered permitted uses. It also provides for the development of a Lake Protection Corridor zoning district that can address uses and design standards along North Monroe Street to improve the corridor.
Woodville Sense of Place Plan: The Woodville Sense of Place is included in Policy 2.6.4. to acknowledge the potential future adoption and the need to align the Comprehensive Plan and land development codes, as necessary, when that effort is completed.
Higher Densities on the Southside: The proposed FLUM changes properties inside the USA that are currently designated Rural to higher density/intensity land uses. This was primarily on the south side of Leon County. Having areas designated Rural inside the USA is inconsistent because Rural is intended for areas that do not have and are not planned to have urban services, while the USA is specifically intended to be where urban services exist or are planned.
Additionally, the Woodville Sense of Place policy (Policy 2.6.4) may further support higher density and intensity in areas around Woodville as recommendations from that planning process are developed. Proposed Policy 2.2.6 also streamlines the transition of properties designated Rural or Rural Residential to higher density or intensity when sewer services become available, reinforcing the broader intent to guide development to areas with appropriate infrastructure.
Parking Minimums: The Comprehensive Plan does not include any parking minimums. Proposed Policy 2.7.4 states that minimum parking requirements shall not be applied to areas designated Urban Center of the FLUM and shall be significantly reduced, removed, or made otherwise flexible for other areas in the MMTD. The proposed policy enables parking minimums to be eliminated (or reduced/made flexible as determined by the City Commission) in the City’s Land Development Code. Additionally, proposed Policy 6.8.5 enables parking minimums to be reduced or eliminated for other types of development, including transit-oriented development, trail-oriented development, and mixed-use developments.
LPA Workshops and Public Hearing through April 1, 2025
The Local Planning Agency (LPA) has a significant role in review and recommendation for the comprehensive plan update. Leading up to public hearing on April 1, 2025, the LPA held three workshops where it received information and progressively considered and made recommendations for the Land Use and Mobility Element (LME) Goals, Objectives, and Policies, and the Future Land Use Map. These workshops are summarized as follows:
At the February and March workshops, the LPA proposed revisions that were incorporated into the proposed drafts, were shared with the public and the Commissions.
Subsequent to the workshops, the LPA held a public hearing on April 1, 2025, to consider the proposed amendments to the LME of the Tallahassee-Leon County Comprehensive Plan for transmittal to the Commissions.
Staff provided a presentation highlighting policies addressing natural resources protection, neighborhood character preservation, densities and intensities, the FLUM, the USA, and transportation policies for connectivity and safety. The LPA received comments from nine (9) public speakers.
After discussion, the LPA voted unanimously to:
The proposed policies were revised to address the LPA recommendations; however, subsequent Board and City Commission direction has resulted in the removal of the Urban Residential Preservation and Sub-Urban Residential Preservation FLUCs.
Additional Neighborhood Outreach
The City Commission considered transmittal of the proposed plan update at its June 11, 2025, meeting. In response to citizen concerns regarding residential density, neighborhood compatibility, and growth patterns, the City Commission deferred transmittal and directed staff to conduct additional community engagement before proceeding.
Subsequently, at its July 8, 2025 meeting, the Board directed staff to undertake additional public engagement focused on the proposed Land Use and Mobility Elements, to compile and summarize community feedback, and to return to the Board with a status report, policy recommendations, and a revised project schedule for consideration prior to adoption. Following that direction, staff launched a countywide community engagement effort.
While the County’s engagement process was underway, the City continued its review of the proposed LME. In response to community concerns about the proposed Urban and Sub-Urban Residential Preservation Future Land Use Categories (FLUCs), the City held a community meeting on August 18, 2025, attended by representatives from numerous neighborhood associations. Based on feedback from that meeting, the City Commission voted on August 20, 2025, to retain the existing Residential Preservation FLUC, with revisions to address legally established nonconforming uses. The City Commission then held its Transmittal Hearing on September 17, 2025, and voted to transmit the proposed LME—incorporating the updated Residential Preservation policies—to the state review agencies. The proposed LME in Attachment #1 reflects these changes.
LME Changes June – September 2025
The following section details the revisions made to the proposed LME between June and September 2025. Comments were received by state agencies in response to the proposed plan transmitted May 13, 2025, by Leon County, and several of the changes described below were directed to address technical assistance comments from Florida Commerce and the Florida Department of Environmental Protection (FDEP).
Planning Periods
Policy 2.1.1 was updated to provide the specific years covered by the short term 10-year planning period and specify that the planning periods are to be considered for amendment during the Evaluation and Appraisal Review process using relevant and appropriate data and analysis of public facilities. This update addresses the technical assistance comment from Florida Commerce.
Density and Intensity Incentives
Policy 3.6.4 was updated to establish a maximum density and intensity standard for proposed density bonuses that facilitate growth in areas that minimize and/or mitigate impacts on the natural environment or community character. This update addresses the technical assistance comment from Florida Commerce.
Future Transportation Maps
The map series was updated to include a functional classification map, a map of planned roadway improvements with the number of lanes, and a context classification map. This update addresses the technical assistance comment from Florida Commerce.
Mahan Gateway Node
Mahan Gateway Nodes are calibrated to the Sub-Urban Mixed-Use Commercial FLUC proposed along the Mahan Corridor. The nodes will continue to be implemented by the existing Mahan Corridor Node and Mahan Corridor Ring zoning districts.
Community Facilities and Community Services
According to the current definition in the glossary of the Comprehensive Plan, Community Facilities include community services, light infrastructure, heavy infrastructure, and post-secondary uses. Community Facilities are allowed in all FLUCs subject to intensity standards included in the FLUCs. Further limitations on Community Facilities are established in implementing zoning districts. Updates to the proposed LME reflect the correct use of the terms “Community Facilities” and “Community Services” depending on the intent of specific FLUCs.
Lake Protection Land Use and Lake Jackson Basin Area
Upon the County’s transmittal hearing to the State agencies, FDEP raised concerns about the County’s proposed FLUM modification from Rural to Lake Protection in proximity to the Lake Jackson Aquatic Preserve and the inclusion of the area within the USA. The City does not have jurisdiction over the FLUM designations in the unincorporated area but the Board and City Commission must both approve the boundary of the USA.
Based on the extent of the proposed USA boundary expansion over environmentally sensitive features within this area of the Lake Jackson basin, and comments from the State, the County recommended revisions to the unincorporated area FLUM and USA boundary. See Attachment #12 Urban Services Area Revisions Summary. These revisions included the removal of the proposed Lake Protection Node at Meridian Road and Bannerman Road/Orchard Pond Parkway, the reduction of area proposed for the inclusion in the USA, the maintenance of lands designated Rural on the FLUM in the vicinity of the lakes, and the removal of the planned development provision for Lake Protection.
At the July 8, 2025, Board meeting, revisions to the proposed comprehensive plan amendment affecting the Lake Jackson basin and the Lake Protection FLUC were presented in a map which reduced the area previously proposed for inclusion in the USA, specifically by reverting back to the existing USA boundary along the western side of North Meridian Road, and the removal of the proposed Lake Protection Node from the intersection of Meridian Road and Bannerman Road-Orchard Pond Parkway. The proposed USA depicted an expansion east of Meridian Road to include areas that were previously developed and parcels previously subdivided for development.
The Board directed staff to develop and implement a comprehensive public participation plan designed to actively engage residents. These efforts, detailed further in this report, garnered additional feedback from the unincorporated community, stakeholders, and reviewing agencies regarding this particular issue.
Transmittal by the City Commission on September 17, 2025
At its September 17, 2025, meeting, the City Commission voted to transmit the proposed LME and Glossary revisions, revised as detailed above, to the State Land Planning Agency as presented at the Transmittal Public Hearing.
Additional Community Engagement in the Unincorporated Area September – October 2025
As indicated earlier, at the July 8, 2025, meeting, the Board directed staff to conduct additional public engagement on the proposed LME and to bring back a status report with a summary of community input and a revised project schedule for the Board’s consideration.
Following the July 8, 2025, meeting, staff scheduled community open houses across the County, developed materials for the public engagement, and began promoting the engagement through coordination with Leon County Community and Media Relations (CMR) staff. Information was shared via County social media platforms and press releases, fliers were put up at community centers where the open houses would be held, staff attended activity group meetings at community centers to inform citizens of the upcoming meetings, and staff gave interviews with local media outlets who covered the engagement efforts with reporting in several mediums. The schedule of community open houses in unincorporated Leon County included meetings at:
Community engagement sessions on the LME at the Woodville Community Center were included in the larger engagement on the County’s Woodville Sense of Place Plan because of the relevance and relationship between the Comprehensive Plan and the Sense of Place Plan.
November 18, 2025 Status Report
A Status Report detailing this engagement, the feedback received, and additional analysis on the topics raised was presented to the Board at its November 18, 2025, meeting. At that meeting, the Board directed staff to incorporate 13 policy recommendations into the LME. The Board also directed staff to initiate a text amendment for the 2026 Comprehensive Plan Amendment Cycle to add a policy to Intergovernmental Coordination Policy 1.8.2 that requires large-scale map amendments, small-scale map amendments of 10 acres or more for properties designated Residential Preservation, Lake Protection, or Rural, and USA boundary expansions to come to the Board as a workshop or an agenda item prior to a Transmittal or Adoption Public Hearing. The 13 policy recommendations, which have been incorporated into the materials presented in this item at the Board’s direction were to:
At the November 18, 2025, meeting, the Board discussed several topics that were included in the agenda materials, presented by staff, or raised by Board members in response to citizen comment. The following sections provide a summary of this discussion and additional relevant information as requested by the Board.
USA Expansion East of Meridian Road (Policy Recommendation #1)
Discussion on the impacts of expanding the USA boundary by 1,485 acres, east of Meridian Road, was focused on the development potential of the properties in the proposed expansion. This expansion includes parcels that have a density higher than Urban Fringe/Rural Residential (which acts as a buffer between urbanized and rural areas), parcels that have already been developed or subdivided, and included parcels currently split by the USA. The allowable densities and intensities today will remain in place in this area. The only practical effect of the USA expansion east of Meridian Road is that the area will be included in future planning for infrastructure (i.e., future water and sewer master plans will account for this area being within the USA). This supports the future extension of central water and sewer to developed parcels and enables undeveloped parcels to be served by these systems as they become available. Future connections or development on central water and sewer will enhance protections for Lake Iamonia and Lake Jackson, which receive drainage from this area.
Extending infrastructure to large, undeveloped tracts can create conditions conducive to subdivision and subsequent development. However, the area east of Meridian Road is already characterized by a mix of developed parcels and parcels previously subdivided for development, with relatively few large undeveloped properties remaining. Incorporating this area without modifying the underlying land use designation would not stimulate additional development activity, as the extension of the USA itself does not confer any new development entitlements beyond those already in place.
Maintaining Proposed USA Expansion Near Chaires (Policy Recommendation #3)
Discussion on the impacts of the net USA expansion of 1,408 acres south of Apalachee Parkway was also discussed. This expansion was first presented to the Board at the May 13, 2025. Discussion of this topic was focused on potential impacts to Old St. Augustine Road, a designated canopy roadway, should development occur on several large acre properties in this area. The properties in question are proposed to be designated as Planned Development or Rural Residential.
For the properties designated as Planned Development, a master plan would need to be adopted by the Board for these properties prior to development activity. The master plan requirements of the Planned Development FLUC require that the master plan shall provide for a development pattern of the area that is less oriented to the use of automobiles and include things such as: How natural features on-site will be protected; major transportation system improvements that are consistent with adopted transportation plans (this would include showing an extension of Orange Avenue through the development, which would alleviate traffic pressure on Old St. Augustine Road); impacts to surrounding areas and protection of canopy roads; how the development will reduce transportation demand by allowing for internal trip capture at project build-out through a mixture of land uses; and how the unique characteristics of the area, including cultural, environmental, and historic resources, will be addressed. As such, any potential development for this area will be required to go through an extensive public vetting process and require that the Board adopt a master plan for the area, addressing the raised concerns, before development may occur.
For the properties designated Rural Residential, there is no change in the allowable development from what is currently allowed.
Lake Protection Conservation Subdivision Standards
Discussion at the November 18, 2025, meeting also included the Lake Protection conservation subdivision standards. As proposed, the base density for the Lake Protection FLUC will remain 1 unit for two acres. For properties wishing to utilize the conservation subdivision procedure, 60% of property would be put into a conservation reserve and the remaining 40% of the property will be able to develop at 2 units per acre. This is the density currently allowed. The proposed Lake Protection FLUC adds a provision allowing properties wishing to utilize this process that have access to central water and sewer to set aside 60% of their property for conservation and develop at 4 units per acre. The proposed increase only applies to conservation subdivisions that have access to water and sewer. The intent is to incentivize the utilization of the conservation subdivision approach over traditional development by providing an increase in density that makes the water and sewer connections more feasible so that more land in the Lake Jackson basin is put into conservation easements.
Data Analysis
Section 163.3177(6)(a) and (b), F.S., require amendments to be based on data analysis as defined in those provisions. Staff, working with the consultant team for the project, developed the data analysis required by statute and made them available on the project website at https://www.compplantlc.com/pages/dataandanalysis. The data analysis has been twice submitted to State and review agencies and been found in compliance. This analysis includes medium population projections as published by the Office of Economic and Demographic Research, as required by Section 163.3177(1)(f)(3). The Community Audit available on the Data Analysis page discusses conservation and environmental lands, easements, analyses of housing, economic development data, placemaking, existing land uses, future land use analyses, infill development, vacant and underutilized lands, development potential based on the Future Land Uses, major developments, and current development trends.
As reflected in Attachment #5, the development potential analysis in the Community Audit was further refined to evaluate vacant parcels and potential redevelopment. This analysis highlights that substantial portions of the community lie within Future Land Use Categories (FLUCs) that inherently limit development or redevelopment potential—such as Residential Preservation, Lake Protection, Rural, Government Operation, and other restrictive categories. In addition, many vacant parcels are located in areas not well suited for residential use, such as commercial subdivisions.
The analysis also does not account for parcel-specific constraints that can limit development feasibility, including environmental features, physical site conditions, subdivision regulations, infrastructure capacity, urban forest requirements, parking and setback standards, and height limitations. These factors are typically addressed during the site-planning stage. Finally, a parcel identified as vacant does not necessarily indicate that it is available for development, as ownership, access, environmental constraints, and other considerations may limit its actual suitability.
Section 163.3177(6)(a)4., F.S., states: “The amount of land designated for future planned uses shall provide a balance of uses that foster vibrant, viable communities and economic development opportunities and address outdated development patterns, such as antiquated subdivisions. The amount of land designated for future land uses should allow the operation of real estate markets to provide adequate choices for permanent and seasonal residents and business and may not be limited solely by the projected population. The element shall accommodate at least the minimum amount of land required to accommodate the medium projections as published by the Office of Economic and Demographic Research for at least a 10-year planning period unless otherwise limited under s. 380.05, including related rules of the Administration Commission.” Accordingly, by ensuring that the LME provides at least the amount of land needed to accommodate medium population growth projections, it meets statutory requirements while also allowing for additional land capacity beyond the minimum necessary. The analyses provided satisfy these requirements. As noted above, the data analysis was submitted to the State Land Planning Agency and review agencies as part of the transmittal packages following both the Board’s and the City Commission’s respective transmittal hearings. All comments related to the data analysis for the proposed LME have been addressed. See Attachment #13 for all comments received from State and review agencies.
Next Steps in the Adoption of the LME
The proposed LME was updated following the Board’s November 18, 2025, meeting to incorporate the policy direction provided by the Board at that meeting.
Policy 1.8.1 of the Intergovernmental Coordination Element requires both the Board and City Commission to adopt amendments to the text of the Comprehensive Plan. As such, the proposed LME is not considered adopted unless or until both the City Commission and Board adopt the proposed LME.
The City Commission will be holding an Adoption Public Hearing on December 10, 2025. The proposed Land Uses on the Future Land Use map reflects lands in unincorporated Leon County for Board consideration and lands within City limits for City Commission consideration. Aside from the land uses on the FLUM being specific to each jurisdiction, the proposed LME for City Commission consideration contains the same Goals, Objectives, and Policies and the same USA as the proposed LME in Attachment #1 for Board consideration. Should the Board and City Commission fail to agree on a change, it will not be included in the adopted LME.
If the LME is adopted (Option #1) by both the Board and City Commission, the adopted amendment will be submitted to the Florida Department of Commerce and other reviewing agencies for a 30-day compliance review. The proposed LME would become effective 31 days after the State Land Planning Agency notifies the local government that the plan amendment package is complete.
Options:
Recommendation:
Option #1
Attachments:
1. Ordinance Land Use and Mobility Element and Glossary Update
2. History of the Land Use and Mobility Elements Update
5. Vacant and Potential Redevelopment Analysis
6. Planned Development Master Plans
7. Statutory Requirements Checklist
8. Policy Crosswalk and Internal Consistency Review
9. Map Series