Orange Park council approves planned-unit development for 211 Campbell Avenue with conditions

The Town of Orange Park Town Council voted 5-0 on Jan. 7 to rezone 0.459 acres at 211 Campbell Avenue from Residential Single-Family (RS-2) to Planned Unit Development (PUD) to permit two single-family detached dwellings.

The rezoning was the subject of a quasi-judicial hearing that included a staff presentation, a statement by the applicant’s attorney and extended public comment. Steven Smith, director of economic and community development, told council that the planning and zoning board had unanimously recommended approval and that staff found the proposal consistent with the town’s comprehensive plan and land‑development regulations. "It is located in a low density residential land‑use category and the proposed two single‑family units are consistent with that designation," Smith said.

Neighbor opposition centered on lot size, surveying and compatibility. David DeCarlo, a nearby resident at 1076 Anna Avenue, said the proposed split would set a dangerous precedent for subdividing established lots, risk mature trees and conflict with the town’s 2040 comprehensive plan goals for neighborhood character and tree preservation. "This proposed zoning change threatens the peaceful and tranquil nature of our neighborhood," DeCarlo said during public comment. Susanna Thompson, another nearby resident, urged caution about survey accuracy and recommended conditions to protect adjacent properties.

Applicant attorney Wyman Duggan responded that licensed surveyors had prepared surveys showing two lots of about 10,000 square feet each and emphasized that the request meets the town’s PUD standards. "The surveyor has said these will be 10,000‑square‑foot lots because that’s what your planning director required," Duggan said. He also told council that any later change to the approved site plan would require a new rezoning or application and could not be done administratively.

Council added four conditions before voting to approve the PUD: 1) the PUD approval will automatically expire if the two new single‑family dwellings are not completed and have certificates of occupancy within 18 months of the ordinance approval, subject to force‑majeure adjustments (for example hurricanes or other disruptions); 2) a deed restriction recorded prior to issuance of any certificate of occupancy limiting the property to single‑family use for 20 years; 3) a minimum of four trees per lot (the requirement may include existing trees) with at least one tree in each front yard, consistent with Article 5 (landscaping) of the town code; and 4) a six‑foot privacy fence (wood or vinyl) along the side and rear yards between the two dwellings, to be installed prior to CO.

Council members debated the timing provision before adopting it. Vice Mayor Sandlin proposed the 18‑month completion deadline and described force‑majeure language that would allow staff discretion to extend the deadline for events like material shortages or hurricanes. "We don't want this rezoning to sit forever," she said in support of a time limit. The council recorded that the applicant’s attorney agreed to the four conditions on the record before the final vote.

The town attorney and staff reminded council that, as a quasi‑judicial proceeding, any denial would need to be supported by competent, substantial evidence in the record; staff and the planning board provided expert recommendations in the record supporting approval.

What happens next: the ordinance adopting the rezoning will be codified per standard town procedure; the deed restriction will be recorded before any certificate of occupancy; any future change from the approved PUD will require a new application and council approval. Members of the public opposed to the rezoning were advised of the usual legal avenues for challenge.

Votes and key figures - Final PUD adoption (rezoning 211 Campbell Ave to PUD to allow two single‑family dwellings): approved 5-0. - Conditions added (build deadline, 20‑year deed restriction, tree minimum, privacy fence): each adopted by recorded voice votes, 5-0.

Speakers quoted in this article are recorded from the Jan. 7, 2025 Town of Orange Park council meeting transcript.