Polk County adopts Greenleaf land‑use changes, creates CDD and signs interlocal agreement

Polk County commissioners on Jan. 7, 2025 approved a package of land‑use and implementation measures to redevelop the former Greenleaf resort into a largely residential community, adopting comprehensive plan and land development code amendments, establishing a community development district (CDD) and approving an interlocal/enhancement agreement that lays out buffer, amenity and infrastructure commitments.

County planners and the developer said the plan reduces the previously approved development intensity, adds new open‑space and amenity requirements, and ties construction and traffic‑study standards to a village map and limiting table placed in the land development code. "We do have capacity to serve both the what's being proposed today, also including the existing residents and Smoky Groves," said Bart Allen, land‑use attorney for the applicant, citing upgrades and permit changes to water and wastewater systems.

Staff told commissioners the package replaces an older PD (planned development) entitlement with a set of fixed village densities and design standards; the developer said the approach gives current residents more certainty because significant deviations would still require a future PD and separate county approval. The proposal includes 25 acres set aside for clubhouse and amenity areas, more than the minimum PD recreation acreage, and plans for three miles of walking trails, a restored nine‑hole golf course in part, and an enhanced amenity program that the developer said would be available to existing residents as well as new ones.

The developer and county presented planned investments in utilities: smart meter installation for potable water and a multi‑phase wastewater plant upgrade to meet Lake Okeechobee basin effluent standards, which the developer estimated could total in the tens of millions of dollars and be completed in phases through 2025. Residents and the developer said those investments and new valve/segregation work are intended to reduce boil‑water impacts and improve system reliability; the developer said smart‑meter work will include existing homes as well as new units.

Public response was mixed but heavily engaged. Speakers in favor told commissioners the plan would revive a neglected property and bring neighborhood amenities; opponents said converting golf course fairways to housing would change the character of surrounding lots and raised traffic and density concerns. "I don't like the idea of building houses on golf courses... But that's... I will support it," Commissioner Braswell said, stressing the applicant's community outreach and amenity commitments.

After public comment and rebuttal time for the applicant, the board voted to adopt the comprehensive plan amendment (P2), the land development code text amendment (P3), and the map amendment (P4). The board then approved the Greenleaf Community Development District (P5), and later adopted an interlocal/enhancement agreement between Polk County and the CDD that specifies buffer walls, landscaping and amenity commitments.

The approvals include several conditions and implementation steps in staff reports: a requirement that a major traffic study be submitted with the first new development phase so cumulative impacts are evaluated, a specialty village map and limiting table in chapter 4 of the land development code, and a requirement that any deviations from the table require a PD and board approval. The CDD petition and the interlocal agreement were presented as a financing and delivery mechanism for the public infrastructure and landscape/buffer commitments.

Commissioners and staff said the entitlements approved do not require the developer to immediately begin buildout; the developer indicated a market‑driven buildout timeline that could span several years. The board recorded no roll‑call tallies in the meeting minutes; motions received a second and carried on voice votes.

The county clerk will include the adopted ordinance language and the interlocal agreement in the official county records; the CDD board supervisors list and the capital improvements plan are part of the CDD filing.

The project will return to county review for site‑level approvals and any PD requests that exceed the adopted table or change unit counts or phasing.