Winter Garden adopts East Winter Garden land‑use amendments to allow denser, mixed housing options

The Winter Garden City Commission on a unanimous vote adopted three amendments to the city comprehensive plan that add new future‑land‑use categories for parts of the historic East Winter Garden neighborhood and make room for accessory dwelling units and a density‑bonus program.

Planning staff told the commission the amendments — Ordinances 25‑04, 25‑05 and 25‑06 — implement the East Winter Garden Plan adopted in 2018 and updated in 2022 and are intended to increase homeownership and housing options while preserving neighborhood character. "Allowing accessory dwelling units can provide housing for family members or generate rental income," a planning staff member said during the presentation. "These units help homeowners adapt to changing needs, build wealth, and introduce more affordable housing options without altering the neighborhood's character."

The ordinances create two new future‑land‑use categories. "Neighborhood residential" would cover eastern areas (including newly annexed parcels) with a base density of 2–6 dwelling units per acre and the potential to reach 10 units per acre through a development bonus program. A "neighborhood mixed‑use" designation would apply to areas on the west side centered around 10th and Center streets; that category allows up to 10 units per acre by right and up to 20 units per acre with a density bonus, and permits small‑scale commercial uses to support walkable, mixed‑use development, staff said. Staff emphasized that the plan amendments do not change land‑development regulations today; the specifics and safeguards will be implemented later in a zoning overlay that will come back to the commission for review.

At public comment, resident Doreena B. Davis of East Bay Street said she and family members — "third, fourth generation" residents — worry about whether the new designations will open the neighborhood to outside developers, increase density next to single‑family homes, and push up property taxes. "Are they trying to buy out residents that are already there?" she asked. Planning staff responded that the zoning overlay will include safeguards to favor existing homeowners and that parcels larger than one acre would be required to proceed through a planned‑development review with board oversight.

Commissioners asked about safeguards to prevent large outside‑developer projects and were told that the forthcoming zoning overlay and planned‑development review would provide the regulatory controls and require this commission's approval for development bonuses. Staff also said the city held a community meeting on Oct. 3, 2024, at Healthy West Orange with roughly 50 attendees; staff described the feedback as largely positive with preservation of neighborhood character the chief concern.

Votes at a glance - Approval of minutes (May 8): motion carried (unanimous). - Ordinance 25‑04 (add new future‑land‑use categories; East Winter Garden): approved (unanimous). - Ordinance 25‑05 (map amendment: ~100.5 acres south of East Plant St., east of Eleventh St., west of SR‑429, north of East Maple St.): approved (unanimous). - Ordinance 25‑06 (map amendment: ~22.8 acres south of North St., east of Ninth St., west of Eleventh St., north of East Maple St.; change to neighborhood mixed use): approved (unanimous).

Commissioners and staff framed the adoption as an initial, plan‑level step; staff told the commission that a separate zoning overlay with detailed rules and oversight mechanisms will be required before higher‑density development or bonuses can occur.

The commission asked staff to return with the overlay language and implementation details so the board can review specific development standards and eligibility for bonuses. The ordinances include severability clauses and an effective date consistent with adoption of comprehensive plan amendments.

The commission approved all three ordinances and related motions by voice vote with no recorded dissents.