Unincorporated Hillsborough County Comprehensive Plan

Only Goals, Objectives, and Policies are adopted.

Last updated June 26, 2026

Contents

02 Introduction

07 Built Environment

162 Natural Open Space

214 One Water

242 Governance

308 Definitions

Introduction

The Unincorporated Hillsborough County Comprehensive Plan is a blueprint adopted by the Board of County Commissioners to guide the development of land, economic growth, resource protection, and the provision of public services and facilities within unincorporated Hillsborough County. The Comprehensive Plan is a resource for managing the County's long-range planning. It is designed to be a working document used by county officials, staff and residents as a policy guide to direct community development decisions. It assists with community infrastructure budgeting and is also used as a tool to guide housing, business and industrial investment in the County.

Typically, comprehensive plans are general in nature, providing a framework and policy context to make decisions relating to land use, public capital investments and future development.

Although comprehensive planning has been required in Florida since the 1970s, local government planning in Florida has been guided for more than 35 years by the 1985 Growth Management Act and subsequent amendments. The

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Growth Management Act requires that every local government in Florida adopt a Comprehensive Plan to guide growth and development. Each Comprehensive Plan must have Chapters that address specific concerns, such as land use, transportation, open space, housing, conservation, and capital improvements.

One particular amendment to the legislation, the 2011 Community Planning Act, allows the County to develop a Comprehensive Plan tailored more toward local context. State Statute 163.3177 states that a Comprehensive Plan must include Sections on Future Land Use, transportation (Mobility), general sanitary sewer, drainage, potable water, natural groundwater (One Water), Solid Waste, conservation (Environmental and Sustainability), Recreation & Open Space, Housing, Coastal Management, Intergovernmental Coordination, Private Property Rights and Capital Improvements. Optional Sections included in the Unincorporated Hillsborough County Comprehensive Plan are Livable Communities and Public Schools. The Livable Communities Section was developed

through an extensive citizen participation program and is intended to provide specific recommendations on issues in certain areas of the county. The Public Schools Section addresses unique needs and offers common policies that address public schools in different areas of the County.

Hillsborough County has divided the components of its Plan into five parts; Built Environment, Natural Open Space, One Water, Governance and Other Documents. The first four parts contain the Goals, Objectives, and Policies constituting the primary Chapters of the Plan. The fifth and final part, Maps & Non-Adopted Documents, contains adopted/non-adopted maps and non-adopted background information on each Section.

The Hillsborough County City-County Planning Commission serves as the Local Planning Agency responsible for preparing, monitoring, evaluating, and updating the Comprehensive Plan.

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Structure of the Comprehensive Plan

An important part of the Hillsborough County Comprehensive Plan Update involved an overhaul of its organizational structure to provide a more user-friendly format and better highlight the relationships between Chapters. The reorganization places the existing and improved Comprehensive Plan Chapters in a new hierarchy organized around four themes: Built Environment, Natural Open Space, One Water Governance and Other Documents. The following depicts the structure of the newly organized plan:

Chapters and Sections

Four Chapters comprise the Comprehensive Plan and house a series of Sections with a corresponding theme or topic. Individual Sections are closely linked by topic area and intent. Goals, objectives, and policies work together to achieve a common purpose.

Chapter Structure

Each Chapter begins with an introduction explaining the significance of the Chapter and its Sections. Each Section has a brief introduction explaining to the reader the importance of the Section and how it helped shape the content within the Chapter. The majority of each Chapter is allocated to goals, objectives, and policies.

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Goal

A Goal is a general statement about a desired future outcome. Goals provide the long-term vision and serve as the plan’s foundation but do not indicate specific actions to achieve the desired outcomes. Goals provide the basis for the more specific directions provided by objectives and policies.

Objective

An Objective is a more specific statement that provides direction to achieve a given goal. There are typically several objectives associated with each goal contained in the plan.

Policy

Policies are specific courses of action or rules of conduct used to achieve the goals and objectives of the plan. They are intended to be used regularly to guide day-to-day decision-making and direct actions to be taken by the County to implement the plan.

Chapters of the Plan

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Built Environment

Provides direction for managing anticipated growth in the unincorporated County in an orderly and balanced manner. The Future Land Use Section is designed to work in concert with all the other Chapters of the Comprehensive Plan to ensure that the distribution of land uses will meet the future economic, social, physical, and environmental needs of unincorporated Hillsborough County. The Mobility Section sets forth a program to develop and maintain a safe, convenient, and efficient transportation system, including public transit and private aviation facilities. This Section also focuses on developing and maintaining an environmentally sensitive transportation system through alternative modes of transportation, coordination with land uses and coordination with adjacent communities. This Chapter also includes the Housing Section, which establishes the foundation for programs and actions that the County will undertake to provide housing for residents with varied needs, incomes, and ages.

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Natural Open Space

Provides the basis to maintain and improve environmental quality as the County seeks a sustainable balance between manmade and natural systems through the Environmental and Sustainability Section. The Coastal Management Section addresses requirements of Florida statutes with an emphasis on hazard mitigation and protection of life and property from natural hazards that may impact the County. The Section also provides language on protecting the environmental ecosystems along the County's coast. The Recreation and Open Space Section includes guidance for the provision of facilities and services relating to parks and recreation.

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One Water

Provides direction for the provision and management of general sanitary sewer, stormwater management and potable water facilities and natural groundwater aquifer recharge per 163.3177(6)(c), F.S. It is developed with the vision of an integrated, sustainable water resources management program. It represents a holistic and integrated approach to planning for potable water, wastewater, stormwater, and the natural environment within unincorporated Hillsborough County.

Chapters of the Plan

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Governance

This Chapter ties the implementing goals, objectives, and policies of the Comprehensive Plan to future infrastructure needs and identifies viable revenue sources to fund those needs through the Capital Improvements Section. The Chapter also includes an Intergovernmental Coordination Section, which identifies intergovernmental relationships and relevant federal, state, regional and local agencies, including adjacent counties and incorporated municipalities. This Chapter aims to identify processes and improve coordination between the county and the various stakeholders to support efficient and effective relationships. The Solid Waste Section discusses solid waste collection, disposal and recycling. The Public Schools Section addresses requirements per 163.3177(12)(g), F.S., and the Definitions provide adopted key terms within the Plan. The Legal Status of the Plan adopted by the Board of County Commissioners is also located within this Chapter.

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Maps & Non-Adopted Documents

The adopted and non-adopted maps required per 163.3177, F.S. depict the current, proposed distribution, extent and location of several types of land uses and natural areas. Non-adopted language provides data and analysis which supports the development of policies within the Plan. Adopted maps are required by state statute.

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Built Environment

Future Land Use

Property Rights

Mobility

Housing

Livable Communities

Only Goals, Objectives, and Policies are adopted.

Future Land Use

Introduction

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Countywide Growth Strategy

By 2045, unincorporated Hillsborough County is projected to grow by over 350,000 additional residents and over 100,000 more jobs. Determining where those new residents will live, work, and play as well as get around is the fundamental purpose of the Built Environment Chapter of the Comprehensive Plan. Specifically, the Future Land Use Section focuses on the County's strategy to accommodate additional growth in a manner that maintains choices of places where people can live – whether it be in a rural, suburban or urban community. It is also important that the new growth occurs in a manner that complements existing communities, maintains environmental and agricultural assets and efficiently utilizes infrastructure. The policies outlined in this section aim to balance these different issues.

Goals of this section aim to accomplish the following:

• Guide future growth through the placement of an Urban Service Area (USA) and identification of Urban Expansion Areas, allowing for urban, suburban and rural communities.
• Define areas within the USA where greater levels of density and intensity of new development and redevelopment - called Centers and Connections -may be appropriate to maximize infrastructure and accommodate projected population and job needs.
• Align public investment decisions with land use decisions to better meet the needs of current and future residents.
• Support the creation of places within our existing suburban communities where people can work, shop and access services in close proximity to where they live with safe mobility choices available to them.
• Identify new residential growth opportunities aligned with infrastructure service throughthe planning for and establishment of Urban Expansion Areas.
• Maintain a distinct Rural Area characterized by the retention of agricultural uses, thepreservation of natural environmental areas and ecosystems and the maintenance of arural lifestyle for existing residents.
• Preserve natural environmental systems and open space while simultaneously reducing exposure to natural hazards.
• Create compatible development patterns, recognizing land use patterns of existing communities, through the design and location of land uses.

Urban Service Area and Urban Expansion Areas

The USA is both a boundary on the Future Land Use Map and a strategy to focus 80% of new growth and redevelopment within that boundary aligning with public and private infrastructure investments.

As shown in Exhibits 1.0 and 1.1 below, based on most recent short- and long-term population

projections, the % of new residential growth going into the Urban Service Area and cities will not meet this goal as soon as 2030. These projections demonstrate that the time has come to plan for and adopt Urban Expansion Areas as outlined in Objective 1.3. These areas will primarily provide the opportunity for new suburban residential development. A focus in expansion areas will be to plan infrastructure needed to serve the new proposed development.

Within the current Urban Service Area (USA) boundary, vacant and developable land has become increasingly constrained. Therefore, the focus in the current USA will be on two things – opportunities for redevelopment and infill in appropriate areas and preserving the character of existing suburban residential neighborhoods. Within the USA, a mix of commercial and employment uses are also planned in close proximity to where people live. Employment projections shown in Exhibit 1.2 anticipate that a greater share of future employment will go into the City of Tampa, allowing for more of the employment growth to be accommodated in the existing Urban Service Area and three cities.

Central water and sewer and greater mobility options should be planned in the USA. By guiding growth to be predominately in the USA and Urban Expansion Areas, we create more livable and desirable communities, while also preserving the rural lifestyles and our numerous environmental and agricultural assets.

Exhibit 1.0 : Population Projections 2030-2045

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Exhibit 1.1: Hillsborough County Share of New Population Through 2045

Exhibit 1.2: Employment Projections 2030-2045

FUTURE LAND USE

GOAL 1

Maintain a land use pattern that concentrates growth in the Urban Service Area (USA) and Urban Expansion Areas which ensures that growth is supported by existing or planned public facilities and services.

Urban Service Area

Objective 1.1

Direct at least 80% of new population growth into the USA and adopted Urban expansion areas through 2045. Building permit activity and other similar measures will be used to evaluate this objective.

Policies

1.1.1 Establish and maintain an USA Boundary to designate on the Future Land Use Map the location for urban and suburban level development and redevelopment in the unincorporated County, maximizing the investment in existing and future infrastructure.

1.1.2 To direct growth within the USA, all new residential or mixed-use Future Land Use categories within the USA shall have a density of 4 du/ga or greater unless environmental features or existing development patterns do not support those densities. These categories are identified as Suburban and Urban land use categories in Table 2.2.

1.1.3 Within the USA, medium and high-density residential and mixed-use development is encouraged to be located along Centers and Connections as identified in Objective 2.4.

1.1.4 Coordinate the timing of new development with the provision of infrastructure, transportation, transit services and other public services, such as schools, recreational facilities, etc., in a financially feasible manner with long and short range plans such as but not limited to the Capital Improvements Program, School Five Year Facilities Plan, 10-Year Water Supply Facilities Work Plan and Transportation Improvement Program.

1.1.5 The appropriateness of Future Land Use Map Amendments that increase density or intensity within the USA to a degree that it changes the land use classification from Suburban to Urban (as outlined in Objective 2.2) should be evaluated based on the following:

• The availability of the programmed urban services such as multi-modal transportation systems, central water and sewer, schools, fire and emergency services.
• The compatibility of the increased density or intensity with the surrounding existing development, particularly existing residential neighborhoods, and whether the change would adversely impact the surrounding areas.
• Furtherance of the adopted Community Plan vision if one exists for the area.

1.1.6 Consistent with and further defined in the Capital Improvements Section, the County will ensure availability of adequate infrastructure for those services with Adopted Levels of Service through the concurrency review process for new development and coordinate land use and transportation planning to achieve Target Levels of Service.

1.1.7 Coordinate with adjacent local jurisdictions and conduct joint planning efforts for infrastructure to manage the timing and location of new development and/or redevelopment when it occurs along jurisdictional boundaries.

1.1.8 In order to address the need for transportation improvements necessitated by development in the expanded Urban Service Area, mobility fee funds collected in the USA expansion pursuant to HC/CPA 24-44 shall be expended in the geographical area included in HC/CPA 24-44 and the mobility fees collected in the USA expansion pursuant to HC/CPA 24-46 shall be expended in the geographical area included in HC/CPA 24-46. However, such mobility fee funds can be used on transportation improvements within a ¼ mile of each of these areas, that will mitigate impacts of development within such areas, in accordance with the Hillsborough County Mobility Fee program ordinance.

1.1.9 Properties Split by the USA

Lots of record identified by single folio as of July 26, 1989, split by the USA line shall be considered entirely within the USA if one or more of the following criteria are met:

• Lots and blocks that are part of a platted subdivision are inside the USA.
• 50% or more of a platted subdivision or record as of July 26, 1989, is within the USA.
• For lots of record as of July 26, 1989, that are 100 acres or greater, at least 50% of the parcel must be inside the USA. For parcels less than 100 acres, at least 25% of the parcel must be in the USA.
• The portion of the property that is outside the USA is water or conservation area.

If none of these criteria are met, the parcel will be considered to be part of the Rural Area in its entirety.

1.1.10 Publicly and privately initiated amendments of the USA boundary will meet the following criteria:

1. Adjacent and contiguous to the established USA; or if not contiguous there are unique circumstances warranting the separation, such as but not limited to separation by environmental lands.
2. Contain developable land addressing population and employment projections.
3. The proposed boundary would be an extension of an existing development pattern and/or has a functional relationship to the development pattern of the surrounding area of the proposed site while ensuring the review of adopted Community Plan guidance has occurred and addresses any conflicts.
4. In order to ensure that new development contributes adequately to the costs associated with necessary infrastructure and services, plan amendment applications for expansion to the Urban Service Area shall provide an analysis of availability and capacity and fiscal impacts on the following infrastructure and services: Schools, Transportation, Water, Sewer, Solid Waste, Stormwater, Fire/Rescue and Parks. Deficits created by the new development shall be addressed through techniques such as but not limited to developer agreements, CIP amendments and public/private partnerships.
5. The proposed boundary would not adversely impact environmental, natural, historical and/or archaeological resources, features or systems to a degree that is inconsistent with the Plan.
6. Data supports the need for expansion of the USA to provide for the projected population and economic development needs within the planning horizon of the Comprehensive Plan. Data sources and methodology shall be consistent with Policy 1.3.2.
7. The proposed boundary would not compromise the efficient use of land and provision of public services/infrastructure or the preservation of rural areas, agricultural land or natural areas.

1.1.11 Energy Industrial Park-Urban Service Area (EIP-USA)

The USA may be expanded to include Energy Industrial Parks and will be categorized as EIP-USA only if they are adjacent and contiguous to the existing USA. Free standing EIP-USAs not adjacent to the existing USA will not be allowed.

Rural Areas

Rural areas will typically carry land use densities of 1 du/5 ga (dwelling unit per gross acre) or lesser intense Future Land Use categories.

The One Water Chapter outlines relevant language related to water, wastewater and septic in the Rural Area.

Within the Rural Area, there are existing developments characterized as suburban enclaves or rural communities. These are residential developments which have a more dense development pattern and character, usually 1 or 2 du/ga. These enclaves are recognized through the placement of land use categories that permit densities higher than 1 du/5 acres.

New development of a character similar to the established community will be permitted to infill in a limited manner but not be permitted to expand into areas designated with lower land use densities.

Rural communities, such as Lutz, Keystone-Odessa and Thonotosassa will specifically be addressed through community-based planning efforts. These communities, and others like them, have historically served as centers for community activities within the rural environment.

Objective 1.2

The Rural Area is intended to provide areas for long-term agricultural uses, large lot rural residential uses and undeveloped natural areas.

Policies

1.2.1 Within the Rural Area, densities shown on the Future Land Use Map will be no higher than 1 du/5 ga unless located within an area identified with a higher density land use category on the Future Land Use Map as a suburban enclave, planned village, a Planned Development pursuant to the Planned Environmental Community – ½ (PEC ½) category, or rural community which will carry higher densities.

1.2.2 For the purpose of this Plan, planned villages shall be defined as areas identified as Residential Planned-2 or Wimauma Village-2 on the Future Land Use Map within the Rural Area. Rural communities are generally existing areas shown on the Future Land Use map at densities higher than 1 du/5ga and up to 1 du/ga outside the USA. Suburban enclaves are those existing areas shown on the Future Land Use Map as higher than 1 du/ga outside the USA.

1.2.3 The Residential Planned-2 or Wimauma Village-2 land use category shall not be expanded outside of the Urban Service Area.

1.2.4 The presence of Future Land Use categories with Suburban or Urban Future Land Use Categories in the Rural Area does not indicate that the County will be providing central water and sewer service to those areas. Water and sewer service provision in the Rural Area is outlined in the One Water Section.

1.2.5 Encourage clustering to protect natural resources and allow for the continuation of bona fide agricultural uses.

1.2.6 In order to recognize that parcels may exist prior to July 26, 1989, which cannot be subdivided due to a slight shortfall in area and for which, in some cases, variance relief is not possible due to density limits of the Comprehensive Plan, and in view of the de minimis effects posed by the subdivision of such parcels in certain circumstances and the substantial benefit that may be afforded the property owners, a maximum reduction of two percent of the minimum lot area required by the property’s zoning shall be allowed, irrespective of density restrictions of the Comprehensive Plan, subject to the following provisions:

• The parcel shall be a lawful lot created prior to July 26, 1989.
• The parcel shall be located in the Rural Area.
• The parcel shall be agriculturally zoned or have a required minimum lot size of one acre or greater.
• The parcel shall be divided into a maximum of two lots.
• The lot size reduction shall be limited to one lot in the subdivision.

Urban Expansion Area

Objective 1.3

Utilize the creation of Urban Expansion Areas to plan for future population and job growth occurs in an efficient manner while addressing infrastructure demands, housing and job needs, natural and rural area preservation and quality of life.

Policies

1.3.1 Urban Expansion Areas shall be created to allow for planning for areas of unincorporated Hillsborough County that are currently in the Rural Area and will transition to a suburban or urban development pattern over the timeframe covered by this plan. A publicly initiated plan amendment will be needed to create an Urban Expansion Area and shall be accompanied by a Urban Expansion Area Plan to guide the development of the expansion area through multiple project phases, as outlined in Policy 1.3.4.

1.3.2 Establish initial Urban Expansion Areas to accommodate population and job growth through 2045 by 2025. Additional Urban Expansion Areas will be considered if the Bureau of Economic and Business Research (BEBR) forecasts, Planning Commission population projections or an Evaluation and Appraisal Report (EAR) depict a need for expansion to accommodate additional population or job growth during the timeframe covered by this Plan.

1.3.3 Establishment of Urban Expansion Areas will include amendments to the Capital Improvement Program, privately funded infrastructure or other mechanisms, ensuring adequate public facilities and services are at or above Adopted LOS standards as new development occurs.

1.3.4 The Urban Expansion Area Plan will study the following:

1. Opportunities for new suburban residential development and identifying where if appropriate any urban level density/intensity development and employment uses may be located.
2. Allow for an efficient pattern of development that is created to allow for goods, services, recreation and community facilities to meet daily needs located proximate to residential areas.
3. Incorporate transitions in density and intensity along the edge of the expansion areas to existing rural residential and/or agricultural areas.
4. Whether new land use categories should be created for use within the Expansion Area.
5. Consider adopted community plans and make amendments to those plans as needed.
6. Gather community input from property owners, businesses and residents in the study area.

7. Plan for the public facilities and services needed to support future residential and non-residential development. Coordinate with external providers such as but not limited to Tampa Bay Water and the School District as needed. Incorporate land for or future payment in lieu of needed public facilities to serve the expansion area, as appropriate.

8. Ensure that natural systems are maintained. The Urban Expansion Area Plan should be coordinated with the Environmental Protection Commission, the Southwest Florida Water Management District as well as other relevant agencies.

9. Plan for future transportation corridors and connections (including trails, bicycle and pedestrian facilities) in appropriate locations to support the new development. Include needed facilities in the Corridors Preservation Map, Context Classification Map, Long Range Transportation Plan and other plans as appropriate.

10. Analyze and evaluate the fiscal impact to the County.

11. Review impact fees, mobility fees and other tools to ensure the proposed Urban Expansion Area is aligned to infrastructure and land use development strategies. Consideration of public/private partnerships to provide for needed infrastructure are encouraged.

FUTURE LAND USE

GOAL 2

Ensure that the character, compatibility and location of land uses optimize the combined potential for economic benefit, fiscal sustainability, protection of natural resources and maintaining viable agriculture. Ensure density and intensities are maintained through the Future Land Use Map.

Implementation

Relationship to the Future Land Use Map

Objective 2.1

The Future Land Use Map is a regulatory tool governing the pattern of development in unincorporated Hillsborough County through the year 2045.

Policies

2.1.1 The Future Land Use Map shall identify Future Land Use categories, summarized in Table 2.2 and further described in Appendix A, that establish permitted land uses and maximum densities and intensities.

2.1.2 All Future Land Use categories shall have boundaries on the Future Land Use Map that coincide to the extent possible with delineated man-made or natural features.

2.1.3 Planning Commission staff, in conjunction with Hillsborough County, will develop the needs/capacity analysis of land required to accommodate the projected population through the planning horizon using a professional acceptable methodology.

Future Land Use Categories

Objective 2.2

The Future Land Use Map (FLUM) shall identify Land Use Categories summarized in the table below, that establish permitted land uses and maximum densities and intensities.

** See Objective 5.5 and its policies for additional information on density requirements. *** See Objective 4.16 and its policies for additional information on typical uses, density requirements and category intent.

Residential Planned-2 (RP-2)

Policies

2.2.1 The character of each land use category is defined by building type, residential density, functional use and the physical composition of the land. The integration of these factors sets the general atmosphere and character of each land use category. Each category has a range of potentially permissible uses, as described in Table 2.2, which are not exhaustive, but are intended to be illustrative of the character of uses permitted within the land use designation. Not all of those potential uses are routinely acceptable anywhere within that land use category. Other policy provisions of the Future Land Use Section may further limit or expand the uses, density and intensity of development.

2.2.2 Each potential use must be evaluated for compliance with the goals, objectives and policies of the Comprehensive Plan and with applicable development regulations.

2.2.3 The Board of County Commissioners may flex the boundaries of Future Land Use plan categories to recognize or grant a zoning district which is not permitted in the land use category. Prior to the determination, Planning Commission staff shall make a recommendation regarding the consistency of the request with the Comprehensive Plan.

Future Land Use categories may be considered for interpretation as flexible boundaries in accordance with the Flex Provision as follows:

• Through application of the flex provision, the land use category boundaries shall be deemed to extend beyond the precise line to include property adjoining or separated by a man made or natural feature from the existing boundary line.
• The line may be relocated a maximum of 500 feet from the existing land use boundary of the adopted Land Use Plan Map. Right-of-Way is not included in the measurement of the 500 foot flex.
• No new flexes can be extended from an existing flexed area.
• All flexes must be parallel to the land use category line.
• A flex must be requested as part of a planned development or site controlled rezoning application. Major Modifications to approved zonings that changes the intensity, density or the range of uses will require that the previous flex request be re-evaluated for consistency and a new flex request may be required.
• The Future Land Use category may be flexed a maximum of 500 feet from the existing line, not including right-of-way, but including man-made or natural features. Flexes must be parallel to the adopted Future Land Use category line.
• Flexes are not permitted in the Rural Area or in areas specified in Community Plans. Flexes are also not permitted from the Urban Service Area into the Rural Area. All flexes in the Rural Area approved prior to July 2007 are recognized and are not to be considered non-conforming.
• Flexes to increase density are not permitted in the Coastal High Hazard Area.
• Flexes are not permitted from a municipality into the unincorporated county.

• Applicants requesting a flex must provide written justification that they meet the criteria for a flex as outlined in Policy 2.2.4.

2.2.4 A flex request must include data and analysis addressing the following criteria:

• The availability and adequacy of public facilities to serve the proposed development accommodated by the flex;
• The compatibility with surrounding land uses and their density and intensity;
• The utilization of the flex furthers other goals, objectives and policies of the Comprehensive Plan.

2.2.5 For projects whose boundaries encompass more than one Future Land Use category, density and intensity calculations will allow for the blending of those categories across the entire project as long as the combined maximum density and intensity allowed within the categories is not exceeded. The combined total number of dwelling units and/or FAR possible under all the land use categories within the project will be used as a maximum for review purposes. All portions of the project must be contiguous to qualify for blending. Blending of densities and intensities is not permitted between the Urban Service Area (USA) and Rural Area boundary.

Density and Intensity

Objective 2.3

Utilize density and intensity requirements to encourage growth in efficient and predictable patterns throughout Hillsborough County.

Policies

2.3.1 Within the USA, development and redevelopment are encouraged to utilize allowable density of the land use category to maximize the utilization of infrastructure and efficient use of the land.

2.3.2 Calculating Density Densities and intensities are calculated on a gross acreage basis. In coastal areas and for properties including lakes, only land above the mean high-water line may be used in determining acreage size. Natural lakes are excluded from the calculation. Each development proposal is considered a "project." Only lands within a project's boundaries may be used for calculating density and intensity. Density and intensity may be transferred between non-contiguous parcels in accordance with the County's transferable development rights regulations or when the parcels are physically separated from each other by a roadway, wetlands, stream, river, lake or railway.

2.3.3 Calculation of density/intensity of conservation and preservation land must follow the provisions of the Environmentally Sensitive Land Density Calculation outlined in Policy 2.3.9.

2.3.4 Calculating Floor Area Ratio

For the calculation of density, acreage used to calculate commercial, office and industrial uses within the project boundary is excluded (except as allowed in the Innovation Corridor Mixed-Use-35 Future Land Use category). The following lands will be included when calculating gross residential density: planned but unconstructed roads and road rights-of-way, utility rights-of-way, public and private parks, sites for schools and churches, open space sites and community facilities sites such as sewage treatment plants, community centers, well fields, utility substations and drainage facility sites.

For the calculation of floor area ratio (FAR), acreage used to calculate residential uses within the project boundary is excluded (except as allowed in the Innovation Corridor Mixed-Use-35 Future Land Use category). The following lands are included when calculating the gross floor area ratio: planned and unconstructed roads and road rights-of-way, public and private parks and recreation sites, sites for schools and churches, open space sites and land uses and public facilities such as sewage treatment plants, community centers, well fields, utility substations and drainage facility sites. Residential units located above office or commercial uses or that meet the commercial apartment definition in the Land Development Code may be calculated on the basis of Floor Area Ratio.

Density and Intensity Bonuses

2.3.5 Alternative Calculations and Bonuses

Density bonuses outlined in the Comprehensive Plan shall not be applicable to properties within the Coastal High Hazard Area.

Note: Development that has significant environmental conditions on-site must also be in conformance with the objectives and policies of the Environmental & Sustainability Section. Development proposed within the Coastal High Hazard Area must also be in conformance with the Goals, Objectives and Policies found in the Coastal Management Section.

2.3.6 Incentives for Mixed-Use

The following incentives are available to encourage mixed-use and vertically integrated mixed-use projects within the Urban Service Area:

• Parking structures shall not count towards the FAR for projects that include 3 or more land uses or vertically integrate two land uses.
• Projects that either include three or more land uses or vertically integrate two land uses may utilize a density or FAR bonus to the next highest land use category or the following FAR bonus:
  • Property with a Future Land Use Category of 35 units per acre and/or 1.00 FAR and higher and within the USA – may increase up to 50 units and/or an additional .50 FAR
  • Property within a Future Land Use Category of 9 units per acre and/or .5 FAR and higher and within the USA – Increase in FAR by .25

• Property within a Future Land Use Category of 4 units per acre and/or .25 FAR and higher and within the USA – Increase in FAR by .10
• When considering mixed-use projects of 3 or more land uses, a different housing type (multi-family, attached single family or detached single family) may be considered as one of the uses.

2.3.7 Upland Ecosystems Density/Intensity Bonus

The preservation of upland natural plant community vegetation is encouraged through the upland ecosystems density/intensity bonus.

Upland ecosystems include, but are not limited to, Pine Flatwoods, Sandhill, Sand Pine Scrub, Xeric Hammock and Mesic Hammock. The requirements and calculations of this bonus are:

• Upland ecosystems acreage used to calculate this bonus shall be recorded as a permanent Conservation Easement pursuant to Florida Statutes and shall not be eligible for any future development rights.
• This density bonus would not be applicable in the Agricultural/Mining, Agricultural or Agricultural/Rural Future Land Use categories.
• Before the upland ecosystems density bonus could be considered, the wetland credit must be calculated.
• The density/intensity bonus for upland ecosystems preservation would provide a 25% bonus for upland ecosystems including but not limited to Sandhill, Pine Flatwoods, Sand Pine Scrub, Xeric Hammock or Mesic Hammock. This 25% bonus would be calculated in the following manner.
  • Acreage preserved multiplied by 1.25 = Acreage eligible for Density/Intensity Bonus
  • Acreage eligible for bonus multiplied by Intensity/Density of Future Land Use Category = Total Floor Area Ratio (FAR) or Density for that Area
  • Density and intensity on the remaining acreage of the site not to be preserved would be calculated in the normal manner.
• Any increase in dwelling units resulting from the upland ecosystems density bonus, would be clustered and compatible with surrounding uses, with defensible space in the event of wildfires and following Fire Wise guidelines.

2.3.8 In an effort to assist projects preserving gopher tortoise habitat, and other upland Significant and Essential Wildlife Habitat and for the purpose of calculating density and intensity, a 100% density transfer may be allowed.

2.3.9 Environmentally Sensitive Land Density Calculation

Density and FAR calculations for properties that include wetlands will comply with the following calculations and requirements for determining density/intensity.

• Wetlands shall:
  • Exclude land below the mean high water line
  • Include conservation and preservation areas
  • Include wetlands associated with man-made water bodies as defined (including borrow pits).

Density and floor area ratio calculations for properties with 25% or greater wetlands and/or man-made water bodies (including borrow pits) shall be subject to an environmentally sensitive land calculation. Upland acreage of the site multiplied by 1.25 yields the base acreage for the density calculation. That acreage is then multiplied by the maximum intensity/density of the Future Land Use Category.

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Exhibit 2.3.9: Environmentally Sensitive Land Density Calculation

2.3.10 Density bonuses will be utilized as an incentive to encourage the development of more affordable housing. These density bonuses are outlined in the Housing Section.

Centers & Connections

Objective 2.4

Promote focused growth within the Urban Service Area (USA) by encouraging a variety of densities, intensities and forms of development fronting identified Connections and within Centers, as shown on the Centers & Connections Map. The purpose of Centers & Connections (C&C) is to focus the County’s redevelopment and infill efforts by promoting residential and commercial choices, encouraging economic growth, improving present conditions of infrastructure and leveraging reinvestment in these areas.

Policies

2.4.1 C&Cs will be prioritized for redevelopment and multimodal transportation investments. Centers include major intersections and areas identified in Community Plans. Connections include roadways that had existing bus service at the time of this policy development, transit supportive density by 2045 and/or suburban town or urban general context classifications. Additional C&C locations will be considered by staff periodically in coordination with Community Plan and Comprehensive Plan updates.

2.4.2 Focus development and redevelopment of land uses fronting Connections and within Centers to serve daily needs, encourage multimodal options and reduce car dependency. Primary uses may be high-density residential uses with complementary retail and service uses, employment intensive uses or public uses (i.e., education, social and community services and workforce development) with supporting residential, retail and service uses.

2.4.3 Encourage multi-use developments and a mix of uses provided either vertically or horizontally within ¼ mile of Centers and ⅛ mile of Connections.

2.4.4 Consideration of C&Cs should be given in the review of Future Land Use Map (FLUM) amendments and rezoning applications. Specifically:

• Higher density residential projects, defined as residential land use categories that are 9 units per acre or higher, should be encouraged in these areas.
• All new development or redevelopment shall meet a minimum density of 75% of the allowable density of the adopted FLU category unless it meets the following criteria:
  • The development is not compatible (as defined in Policy 3.1.3) and would adversely impact the existing development pattern within a 1,000-foot buffer of the proposed development.
  • The development would have an adverse impact on environmental features on the site or adjacent to the property.

• The development is restricted to agricultural uses and would not permit the further subdivision of residential lots.
• All projects are encouraged to include context-sensitive multimodal facilities in site design and not preclude future connections to adjacent properties, consistent with policies adopted within the Mobility Section.

2.4.5 Properties within the ⅛ mile buffer of Connections will be eligible for density bonuses. Properties within the ¼ mile buffer around Centers will be eligible for density and intensity bonuses. If a property is split by the buffer, no less than 75% of the parcel needs to be within the buffer of a Center or Connection to be eligible for the bonus.

2.4.6 To further the redevelopment and mobility goals of C&Cs, the County shall update the Corridor Preservation Plan (CPP) to ensure adequate and feasible right-of-way (ROW) for multimodal improvements for Centers and Connections.

2.4.7 Consider LDC updates to further streamline redevelopment within identified C&Cs.

Objective 2.5 Establish a sense of place through diverse housing types, mixed-use development and multimodal investments and design fronting Connections and within Centers.

Policies

2.5.1 Promote the development of a full range of housing types fronting Connections and within Centers to allow for households of varying ages, demographics and income levels.

2.5.2 Create walkable patterns of development fronting Connections and within Centers that are scaled to accommodate a mix of appropriate building types, public spaces, and sufficient areas for off-street parking, service areas and infrastructure.

2.5.3 Encourage active ground floor uses such as retail and service establishments fronting Connections and within Centers, particularly on walking and cycling routes. To allow flexibility, encourage ground floor ceiling heights that allow for commercial use irrespective of initial use.

2.5.4 Provide cross-parcel connections between new development sites and adjacent parcels fronting Connections and within Centers, as per LDC standards on access management.

2.5.5 Prioritize funding of sidewalks, crosswalks, bicycle and pedestrian safety improvements, parallel corridor improvements and other multimodal accommodations fronting Connections and within Centers, consistent with adopted policies within the Mobility Section.

2.5.6 Design streets fronting Connections and within Centers to encourage low speed vehicular traffic and the safe movement of pedestrians and bicyclists. Where feasible, street widths should be minimal, with narrow travel lanes, to reduce crossing distances for pedestrians.

2.5.7 Continue to prioritize context-sensitive walking and bicycle facilities fronting Connections and within Centers, which may include but are not limited to protected bike lanes, cycle tracks, multi-use paths and off-street walkways, consistent with adopted policies within the Mobility Section.

2.5.8 Prioritize enhancements to crosswalks at intersections with transit stops fronting Connections and within Centers and promote the placement of protected mid-block pedestrian crossings at locations between intersections to create more direct and safe access to transit stops.

2.5.9 Accommodate bicycle parking and micromobility stations, such bike share and electric scooters, near transit stops fronting Connections and within Centers to provide easy access. Design facilities to minimize conflicts with pedestrian routes.

2.5.10 Encourage on-street parking fronting Connections and within Centers to provide a buffer between pedestrians and moving traffic, deliver high-turnover spots to support storefront retail uses, reduce the potential for spillover traffic in surrounding areas and reduce the need for off-street parking.

2.5.11 Consider a reduction of required parking and adoption of shared parking strategies to reduce the overall parking supply and increase the efficiency of use of available land.

2.5.12 Encourage off-street parking to be placed behind buildings and out of sight from public spaces.

2.5.13 Utilize parking management programs and regulations to control parking in neighborhoods fronting Connections and within Centers. Programs may include but are not limited to providing signage to inform motorists on parking location and availability, residential permit programs on neighborhood streets, shared parking programs or spillover parking options.

Density and Intensity Bonus

Objective 2.6

Support focused growth and a mixed-use development pattern with variety of mobility choices fronting designated Connections and within Connections by promoting compatible uses and higher densities and intensities of development.

Policies

2.6.1 Increased densities within a ¼ mile of Centers and ⅛ mile of Connections, as identified in the Centers & Connections Map, may be considered in accordance with Table 1 if the design requirements listed below and all other Comprehensive Plan policies are met. Bonuses received for RES-4 and RES-6 land use categories are only for properties fronting on the roadway that is the Connection. This provision does not apply to Centers.

2.6.2 A planned development (PD) rezoning application is required to qualify for the bonuses noted in Table 1.

2.6.3 New mixed-use and non-residential development developed in accordance with the design requirements of these policies may be considered for an increase in Floor Area Ratio (FAR) within specific Centers as identified on the Centers & Connections Map. Categories of 9 units per acre or higher can be considered for an additional .25 FAR. Categories less than 9 units per acre and equal to or greater than 4 units per acre can be considered for an additional .10 FAR.

2.6.4 The residential portion of a mixed-use project may be determined either by density or FAR, whichever is more beneficial to the development.

2.6.5 Incentivize Transit-Oriented Development (TOD) within C&Cs in line with the TOD policies of this plan and specific to areas with current or planned fixed guideway transit. If a project utilizes a bonus as noted in Table 1 for OC-20, RES-35, UMU-20, RMU-35, ICMU-35 and has current or planned fixed guideway transit, that project is eligible to stack on a TOD bonus identified through Station Area Planning. This is subject to a completed Station Area Plan, compatibility and site requirements.

2.6.6 Incentivize Transfer of Development Rights (TDRs) within C&Cs to focus residential growth within the USA. If a project utilizes a bonus as noted in Table 1 and uses TDRs, that project is eligible for an additional 25% of the base density.

2.6.7 Incentivize affordable housing within C&Cs. If a project utilizes a bonus as noted in Table 1 and includes affordable housing units in line with the criteria of the Affordable Housing Density Bonus, that project is eligible for an additional 25% of the base density.

Table 2.6.6: Allowable Density Increases for Centers and Connections (C&C)

Design Criteria

Objective 2.7

When utilizing the bonus structure, specific design criteria must be met to promote high-quality building form and urban design within C&Cs.

Policies

2.7.1 Where Centers and Connections overlap with current or future special districts as defined within the LDC, those design overlays would override the design criteria outlined in this policy language.

2.7.2 For evaluation of rezonings utilizing the bonus, non-residential development fronting C&Cs shall not have uses that have little to no pedestrian activity or transit trips (e.g., warehousing or storage) and/or are high car trip generating uses not designed in a manner compatible with the creation of walkable places. Site design shall include safe, continuous and connected walk and bike facilities fronting the corridors.

2.7.3 Place buildings fronting and oriented to public streets and public spaces. To maintain building continuity, the majority of the lot width should be occupied by a building located at the setback or build-to line. There shall be no vehicular parking or circulation between the building and the street and service areas must be located to the rear or side of the building.

2.7.4 Design building facades with distinct base, middle and top. Facades must be designed to reduce the monolithic appearance of blank/unadorned walls through the use of wall projections and/or recesses, windows, doors and/or changes in plane, material or color.

2.7.5 All development shall be required to provide connected sidewalks that accommodate higher pedestrian volumes and provide adequate direct pedestrian access from the public sidewalk to the building. The primary building pedestrian entrance(s) shall be visible and directly connected with the sidewalk or multi-purpose pathway within the street on which building is fronting via a minimum 5-foot-wide direct sidewalk connection.

2.7.6 When utilizing the bonus, gated communities are not allowed. This is not intended to preclude internal site security. Demonstrate cross-parcel connections between new development sites and adjacent parcels, when complementary uses are adjacent, to create connectivity.

2.7.7 Avoid overly large block sizes to maintain a walkable scale and promote access between destinations and transit stops.

2.7.8 To provide appropriate transitions to existing neighborhoods, locate the taller buildings on parcels directly fronting C&Cs with transitions in height where C&C development abuts lower density/intensity development. Building volumes are divided to appear as smaller volumes grouped together. Volume breaks may be achieved by volume projections and recesses and varying volume heights and roof lines.

2.7.9 Configure projects in the C&Cs to allow for phased intensification.

• Buildings constructed in early phases of a multi-phase project should be aligned fronting primary streets.
• Parking lots should be laid out to accommodate future buildings and parking structures.
• Utilities should be located and designed to permit ultimate build out at maximum intensity with minimal disruption to improvements delivered in earlier phases of the project.

2.7.10 Landscaping shall focus on providing shade, accentuating buildings and public spaces and screening residential from non-residential uses.

2.7.11 For projects over 5 acres that are multifamily, mixed-use or non-residential, no less than 10% of the development should be dedicated to public green space or open space. Options include greenways, parks and trail connections. Projects can utilize the community gathering places policy within the Comprehensive Plan and LDC to replace this requirement, if they continue to offer public green space or open space.

Transfer of Development Rights

Objective 2.8

The County will institute a Transfer of Development Rights (TDR) Pilot Program and revise its transferable development rights regulations in order to promote development in planned growth areas, preserve the unique character of established communities, support the agricultural industry, preserve environmental lands, preserve historical landmarks and promote the development of a recreational greenway system.

Policies

2.8.1 The TDR pilot program shall be limited to the areas of the County subject to the Wimauma Community Plan (WVR) and along Centers and Connections.

2.8.2 As part of implementation of the TDR program outlined in the following policies, the County will amend the Part 5.07.00 – Transfer of Development Rights Pilot Program of the County Land Development Code to, at a minimum:

a. Establish a sunset date for the pilot program, and

b. Recognize the maximum density adopted within the Wimauma Community Plan and Centers and Connections including the use of incentives; density(s) within these respective areas shall not be exceeded beyond that which is adopted, and

c. Establish factors for converting density into TDR credits that is reflective of the nature of the lands in the sending zone, and

d. Establish a method to memorialize the conversion of density into TDR credits and the recordation of same.

2.8.3 Lands in Sending Zones that are donated, fee simple or for which conservation easements have been given to local, state or federal environmental or similar land conservation agency shall be eligible to receive TDR credits consistent with the Land Development Code Part 5.07.01.

2.8.4 Should TDR credits for any particular site in a sending zone remain unused the owner of that site may convert those credits back into densities on the site from which they originated.

TDR Sending and Receiving Areas Map will include:

• Areas identified as such in adopted Community Plans, limited to the Wimauma Village Residential Community Plan and Centers and Connections.

2.8.5 The TDR pilot program is hereby initially established for a period of 20 years at which time the County shall assess the merits of the pilot program at which time the Board of County Commissioner shall determine the future of the Pilot Program.

2.8.6 The properties designated as Sending Zones and Receiving Zones are limited to those areas as identified as part of the Pilot Program in Policy 2.8.1 above; however, may be amended by the County in concert with an amendment to a Community Plan or similar initiative.

2.8.7 The County Administrator or designee shall be responsible for maintaining permanent records of all TDR Certificates issued, easements recorded and TDR Credits transferred to Receiving Area sites or purchased and held by ELAPP or another organization as approved by Hillsborough County or otherwise extinguished. An annual summary of TDR Certificates issued and transferred shall be submitted to the Hillsborough County Board of County Commissioners for information.

2.8.8 Hillsborough County shall evaluate the pilot TDR program annually to measure program effectiveness.

2.8.9 The County shall undertake a public outreach campaign in coordination with other visioning and community planning initiatives, targeting property owners in designated sending and receiving areas, to encourage the use of transferable development rights. Examples of outreach include production of a brochure explaining the program, creation of a web page specifically for the program and preparation of a presentation that explains the program.

2.8.10 For specific criteria related to the WVR-2 transfer of development rights, refer to Policies 5.5.9 and 5.5.9.a.

Community Context

The Future Land Use Section provides a framework for development throughout the County and has long-reaching effects on new and established communities. Every community's unique identity can be reinforced and enhanced through land use development decisions. Land use decisions should consider local context, promote cohesion between new development and existing communities, reinforce community identity and pride and promote an overall more livable community. This section provides additional community planning considerations for compatibility and to help safeguard Hillsborough County communities.

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Compatibility

Objective 3.1

New developments should recognize the existing community and be designed in a way that is compatible (as defined in FLUE Policy 3.1.3) with the established character of the surrounding neighborhood.

Policies

3.1.1 Restrict incompatible land uses to protect established and planned neighborhoods and communities by utilizing planning principles that limit commercial development in residential Future Land Use categories. Commercial and mixed-use in residential Future Land Use categories shall be limited to neighborhood serving guided by the commercial locational criteria in Objective 4.7.

3.1.2 Gradual transitions of intensities and densities between different land uses shall be provided for as new development is proposed and approved through the use of professional site planning, buffering and screening techniques and control of specific land uses. Screening and buffering used to separate new development from the existing, lower-density community should be designed in a style compatible with the community and allow pedestrian penetration. In rural areas, perimeter walls are discouraged and buffering with berms and landscaping are strongly encouraged.

3.1.3 Any density increase shall be compatible with existing, proposed or planned surrounding development. Compatibility is defined as the characteristics of different uses or activities or designs which allow them to be located near or

adjacent to each other in harmony. Some elements affecting compatibility include the following: height, scale, mass and bulk of structures, pedestrian or vehicular traffic, circulation, access and parking impacts, landscaping, lighting, noise, odor and architecture. Compatibility does not mean "the same as." Rather, it refers to the sensitivity of development proposals in maintaining the character of existing development.

3.1.4 Lots on the edges of new developments that have both a physical and visual relationship to adjacent property that is parceled or developed at a lower density should mitigate such impact with substantial buffering and/or compatible lot sizes.

3.1.5 Incompatible, non-residential land uses within established neighborhoods that are not in conformance with the Unincorporated Hillsborough Comprehensive Plan shall be given incentives to adaptively reuse or replace structures to uses that are compatible with the residential area through incentives such as the use of residential density credits for infill development and non-conforming use incentives.

3.1.6 Encourage early neighborhood-based input regarding rezonings which require public hearing to facilitate community understanding of issues.

Community Planning

Objective 3.2

Hillsborough County is comprised of many diverse communities and neighborhoods. The comprehensive plan is effective in providing an overall growth management strategy for development within the entire County. Strategies shall be developed that ensure the long-range viability of its communities through a community and special area studies planning effort.

Policies

3.2.1 Prior to the location of any new or expanded major public facility or public building or grounds, the proposed site and possible impacts shall be evaluated in accordance with the criteria specified below:

• Provide opportunities at the time of site selection and planning for citizens and neighborhoods to express their viewpoints.
• Opportunities shall be provided for adjacent property owners and neighborhoods to choose to participate in the review process.
• The alternatives evaluation shall include consideration of such factors as technical aspects of the facility, costs, design, impacts on the environment and availability of public facilities and services, including transportation impacts and future operation and maintenance costs of alternative sites as well as public safety and welfare factors. Consider all alternatives, including not siting the facility.
• The siting process shall avoid any detrimental effects on existing and planned development in the study area as well as consider the ancillary impacts associated with the particular facility.

3.2.2 Master Plans shall ensure the facilities are focal points in neighborhoods and are designed in a compatible scale and integrated into neighborhoods to create a more walkable neighborhood with a greater sense of place. Master plans shall identify opportunities for collocation of community facilities and explore partnerships with private and non-profit organizations for community facilities and programs.

3.2.3 The County will coordinate the location of community facilities between agencies and departments to identify opportunities for collocation of facilities.

3.2.4 The County shall assist the Hillsborough County City-County Planning Commission in developing community plans for each planning area that are consistent with and further the Goals, Objectives and Policies of the Comprehensive Plan. The community plans will be adopted as part of the Comprehensive Plan in the Livable Communities Element. These community-specific policies will apply in guiding the development of the community. Additional policies regarding community planning and the adopted community plans can be found in the Livable Communities Element.

3.2.5 Continue to implement the North Dale Mabry Corridor Plan, adopted by the Board of County Commissioners on December 12, 1989. Within the North Dale Mabry Corridor Plan, office uses may be considered pursuant to the locational criteria. Commercial uses should be located within designated activity centers.

3.2.6 Look for opportunities to undertake adjacent community planning concurrently with roadway planning. Undertake planning for scenic corridors together with community planning where appropriate.

Economically Disadvantaged Populations

Objective 3.3 Align the location of land uses such as employment opportunities and social services in close proximity or with transportation access to Economically Disadvantaged Populations.

Policies

3.3.1 As new community facilities are planned, look for opportunities to locate them proximate to Economically Disadvantaged Populations or in close proximity to public transportation facilities to increase their accessibility.

3.3.2 Provide for housing opportunities targeted for Economically Disadvantaged Populations where employment centers, cultural, educational, transportation and recreational facilities are easily accessible.

3.3.3 Identify opportunities to locate employment generating uses and economic development programs with areas proximate to or accessible to Economically Disadvantaged Populations.

3.3.4 Provide assistance to Minority Business Enterprises for Economically Disadvantaged Populations. Support Minority Business Enterprises through incentivizing investments which may include the development of small business incubators and other programs of the Economic Development Department.

3.3.5 Consider the impact of the physical environment on public health by incorporating feedback from health and social service agencies as land use decisions are being made, particularly in areas with Economically Disadvantaged Populations.

3.3.6 Through the land use and development review process, ensure that undesirable land uses are not concentrated in areas within predominantly Economically Disadvantaged Populations, but are distributed throughout the County.

Objective 3.4

The County shall explore mechanisms to provide safe, affordable housing for Economically Disadvantaged Populations.

Policies

3.4.1 Group home and foster care locations shall be distributed throughout the unincorporated County to avoid an overconcentration of these facilities in any one area.

3.4.2 Encourage maintenance and prevent deterioration of housing stock. Continue or establish educational programs for maintenance of the housing through the Affordable Housing Services Department.

3.4.3 Provide incentives to the Small Minority Businesses involved in housing rehabilitation projects that will benefit the Economically Disadvantaged Populations.

3.4.4 Utilize existing programs (federal and state) and develop local programs to address the provision of housing for those Economically Disadvantaged Populations with special needs such as older adults, people with disabilities, people experiencing homelessness and farmworkers.

3.4.5 Utilize Affordable Housing and Economic Development Departments to coordinate with private sector agribusiness to provide technical assistance and long term housing for farmworkers.

Culture and Historic Preservation

Objective 3.5

Hillsborough County's heritage shall be recognized through the preservation of historical and archaeological sites, structures and districts significant to Hillsborough County.

Policies

3.5.1 Protect from demolition and significant alteration historical and archaeological resources listed in or considered eligible for local designation by the Hillsborough County Archaeological and Historic Resource Survey or listing in the National Register of Historic Places and those resources designated as landmarks. The County will perform a regular update for properties with potential historical significance.

3.5.2 The County shall develop techniques including public education and the development of incentives to encourage property owners to request historic landmark designations.

3.5.3 The adaptive reuse of historically significant and/or structurally sound buildings shall be encouraged through reuse incentives adopted as part of the Hillsborough County development regulations.

3.5.4 Consider developing an updated Community Cultural Plan for approval by the Board of County Commissioners that incorporates the significant changes in community cultural needs that have occurred since the last Plan was completed in 2006.

3.5.5 Hillsborough County should consider including a master plan to integrate cultural uses into the design of neighborhoods, community centers, recreation facilities, libraries and schools as part of the Community Cultural Plan to more effectively serve community and neighborhood needs.

3.5.6 Enlist developers as partners to invest in and encourage cultural developments that add value to their communities and their projects.

3.5.7 Encourage incentives to offer developers to incorporate cultural space and public art to their projects.

3.5.8 Maintain, support and expand public art programs throughout Hillsborough County.

3.5.9 Encourage life-long opportunities for arts, heritage and science education for all county residents.

3.5.10 Support investment in community facilities, libraries, schools, universities and recreation centers, especially those that accommodate mixed-uses including arts, heritage and interpretive sciences.

Development

FUTURE LAND USE

GOAL 4

Create safe, livable, and sustainable communities serving the needs of all residents that provide opportunities for housing, jobs and services in close proximity with a variety of mobility choices.

General

Objective 4.1

Efficiently utilize land to optimize economic benefits while ensuring a choice of living environments and protecting natural resources.

Policies

4.1.1 Each land use plan category shall have a set of zoning districts that may be permitted within that land use plan category, and development shall not be approved for zoning that is inconsistent with the plan.

4.1.2 Developments must meet or exceed the requirements of all land development regulations as established and adopted by Hillsborough County, the state of Florida and the federal government unless such requirements have been previously waived by those governmental bodies.

4.1.3 Legal non-conforming uses shall be recognized. The rebuilding or expansion of existing legal non-conforming uses which do not have any significant adverse effects on adjacent properties shall be permitted. With the exception of principal residences or uses or structures destroyed by an act of God, the expansion of non-conforming uses and rebuilding of non-conforming uses, shall not occur more than once. The expansion or rebuilding shall not result in an increase of the intensity of use which exceeds fifty (50) percent of the existing intensity or the maximum building square footage within the plan category, except in conformance with the Housing Section Policy 1.2.10. However, the expansion may permit the construction of a use that is less intense than the existing non-conforming use. The new use may still be non-conforming with the plan. All expansions or rebuilding shall be consistent with other plan policies.

4.1.4 Construction or reconstruction of residential structures (both single and multi-family) is permitted on legally established or vested lots of record which exceed the underlying density of the Plan. All other relevant provisions of this Plan shall apply. To the greatest extent possible, adjacent lots of record under single ownership should be combined to achieve as near to the underlying plan density as is attainable.

4.1.5 Periodic updates to plan policies and Land Development Code provisions to ensure that they accurately reflect the community’s desires for a higher quality of design and greater compatibility among land uses.

4.1.6 Existing and future land development regulations shall be made consistent with the Comprehensive Plan, and all development approvals shall be consistent with those development regulations per the timeframe provided for within Chapter 163, Florida Statutes. Whenever feasible and consistent with Comprehensive Plan policies, land development regulations shall be designed to provide flexible, alternative solutions to problems.

Mixed-Use Land Use Categories

Objective 4.2

All development in the mixed-use categories shall be integrated and interconnected to each other.

Policies

4.2.1 Projects proposed in all mixed-use plan categories shall be required to develop with a minimum of two land uses within a single building or within a single project in separate buildings in accordance with the following:

• Requirements for two (2) land uses will apply to properties 10 acres or greater in the RMU-35, UMU-20 and CMU-12 land use categories and to properties 20 acres or greater in the SMU-6 and NMU-4 land use categories.
• For primarily non-residential projects, at least 10% of the total building square footage in the project shall be used for uses other than for the primary use.
• For primarily residential projects, at least 10% of the land area (shall be used for a non-residential use or 10% of the density for a different housing type.
• The mix of uses may be achieved by utilizing off-site uses of a different type located within ¼ mile of the project, on the same side of the street of a collector or arterial roadway connected by a continuous pedestrian sidewalk.
• The land uses that may be included in a mixed-use project include: retail commercial, office, light industrial, residential, residential support uses and civic uses provided that the use is permitted in the land use category. Different housing types (multi-family, attached single-family or detached single-family) may be considered as separate/different uses.
• These requirements do not apply within ½ mile of an identified Center or Connection (see Objective 2.4) or when the project is exclusively industrial.

4.2.2 In the mixed-use land use categories, when two or more uses are required on the same project, and in projects receiving a mixed-use density/intensity bonus, then the development shall be implemented through a zoning district that demonstrates street connectivity, description of land uses and site placement, access locations and internal connections at a minimum.

4.2.3 Encourage provision of affordable housing within mixed-use developments through

development incentives.

4.2.4 Encourage the inclusion of housing within mixed-use projects, to include the provision and integration of low and moderate income housing dispersed throughout the mixed-use categories.

4.2.5 Encourage development of child care facilities in conjunction with both residential and employment generating activities in projects located in the mixed-use categories. As incentive to have these facilities provided within residential or employment generating projects, child care facilities will not count towards a project's overall density or intensity calculations; in order to utilize this incentive, the project must utilize a site plan controlled zoning district.

4.2.6 Quality employment opportunities (office/industrial) shall be provided within mixed-use categories.

4.2.7 Encourage commercial structures to consist of more than one story and be vertically mixed.

Land Use Suitability

Objective 4.3

Development orders shall not be issued unless development is suitable for the physical conditions of the land, including, but not limited to, topographical and soil conditions and development mitigates those adverse impacts that it creates upon the physical conditions of the land that may affect the health, safety and/or welfare of the people who live and work within those particular areas.

Policies

4.3.1 The Land Development Code shall contain regulations that control erosion and sedimentation to help minimize the destruction of soil resources.

4.3.2 Soil capability analyses for flood hazards, stability, permeability and other relevant soil characteristics shall be considered when planning for new development.

4.3.3 If properties in the following areas, Section 25, Township 32 and Range 18 and in Section 19 and 30, Township 32 and Range 19, are developed utilizing septic systems, the development shall utilize the Performance-based Treatment System as defined in Rule 64E-6.025(10), F.A.C.

4.3.4 Land use planning efforts shall make a distinction between the land uses that may be considered within land areas adjacent to limited access highways but not directly

accessible to an interchange, and those land areas that are directly accessible to an interchange. These distinctions shall include, but not be limited to, compatibility of the land use with the interstate highway system, effect of the land use on highway system levels of service and availability of the county collector and arterial systems to serve the proposed land use.

4.3.5 Continue to implement, review and amend, as needed, measures to restrict and eliminate inappropriate and unsafe development in the Coastal High Hazard Area (CHHA) through plan designated uses, zoning and density and intensity limitations.

4.3.6 Development proposals within the Coastal High Hazard Area shall provide adequate data during the site plan review process to assess the impacts of the proposed development upon existing infrastructure within the Coastal High Hazard Area, as well as Level of Service Standards established for shelter capacity and evacuation clearance times.

4.3.7 Within the Coastal High Hazard Area (CHHA), new development and substantial expansions of existing uses, other than government-owned or leased facilities, shall be approved through a planned unit development rezoning process for the following:

• Commercial or industrial development on more than five acres of land; or
• Residential subdivisions exceeding ten lots

4.3.8 Limit new development uses on the waterfront to those that can be considered in the existing Future Land Use category, are vested or entitled, water-related, water-dependent or further the Port consistent with Port Tampa Bay's Master Plan and limit public expenditure.

4.3.9 Priority will be given to locating water-dependent and water-related uses within the Coastal Planning Areas designed for industrial development on the Future Land Use Map. Water-dependent and water-related uses that are not industrial in nature may also be considered in other areas of the Coastal Planning Area.

4.3.10 Water-related land uses requiring dredging and filling that would result in a significant adverse impact to the long-term hydrological or biological integrity of wetlands and/or the natural shoreline, will not be permitted.

4.3.11 Seek dedication of public access easements for multi-family and non-residential private development in shoreline areas.

4.3.12 Prohibit the development of new mobile home parks within the Coastal High Hazard Area.

Residential

Neighborhood and Community Development

Objective 4.4

Neighborhood Protection

Enhance and preserve existing neighborhoods and communities. Design neighborhoods which are related to the predominant character of their surroundings.

Policies

4.4.1 Any density or intensity increases shall be compatible with existing, proposed or planned surrounding development. Development and redevelopment shall be integrated with the adjacent land uses through:

a) The creation of like uses; and b) Creation of complementary uses; and c) Mitigation of adverse impacts; and d) Transportation/pedestrian connections; and e) Gradual transitions of intensity

4.4.2 Neighborhoods shall be designed to include an efficient system of internal circulation and street stub-outs to connect adjacent neighborhoods.

4.4.3 Lot size and density of new or redeveloped residential projects shall reflect the character of the surrounding residential area and where appropriate, shall reflect efforts to encourage gopher tortoise and other Significant and Essential Wildlife Habitat protection.

4.4.4 All land use categories allowing residential development may permit clustering of residences within the gross residential density limit for the land use category.

4.4.5 Community gathering places shall be provided within residential developments, where feasible and necessary, to improve and enhance the quality of life within neighborhoods. Community gathering places shall be functionally designed and improved to allow for ` leisure activity and be accessible to the residents of the proposed development.

4.4.6 The Land Development Code shall require single family detached, single family attached and townhome residential development of 50 units or greater for platted lot sizes of less than 1/3 acre to include community gathering places. Gathering places shall be walkable from all residences within the development.

4.4.7 Application of Densities to Lands Fronting Water Bodies

Lands fronting a water body shall have density and/or intensity comparable and compatible with other development parcels and lots fronting the water body outside of the Urban Service Area. This is to ensure the continuation and protection of established large lots, lower-density residential land uses and the character of lands fronting on lakes, streams and rivers and to prevent the application of other provisions in the Future Land Use Section as granting higher densities in locations outside of the Urban Service Area.

4.4.8

New development and redevelopment must mitigate the adverse impacts to include, but not limited to noise, visual, odor and vibration impacts created by that development upon all adjacent land uses.

Innovative Housing Options

Objective 4.5

The County will encourage innovative means of providing housing.

Policies

4.5.1 For the purpose of calculating residential density in this plan, the following shall not be considered as a separate dwelling type:

An individual room of a Congregate Living Facility where kitchen facilities are accessory or cooking facilities are auxiliary to the required main kitchen;

4.5.2 Residential units located above office or commercial uses or that meet the commercial apartment definition in the Land Development Code may be calculated on the basis of Floor Area Ratio as opposed to units per acre.

4.5.3 Within residential projects, site planning techniques shall be encouraged to develop a variety and variation of lot sizes, block faces, setbacks and housing types.

4.5.4 Within the Research Corporate Park, residential development can only be considered in projects utilizing the mixed use residential option. This option allows for a density of up to 30 dwelling units per acre for projects meeting Traditional Neighborhood Design principles and providing a mix of uses. Neighborhood commercial uses that are not vertically integrated shall not exceed 0.30 FAR. This option shall only be permitted within the Urban Service Area and must utilize a planned development zoning.

In order to utilize the mixed use residential option, projects must demonstrate a pattern of compact, livable and walkable neighborhoods and centers and be supported by locally oriented employment, goods and services. Traditional Neighborhood Development for the purposes of this option must be designed to provide for integration of uses, compatible scale, residential diversity and

variety, internal relationship of uses and linkages as well as to provide shopping and job opportunities. Mixed-use residential projects would include a residential, neighborhood commercial and employment center component (excluding light industrial uses) and shall have no single use (residential, neighborhood commercial or employment center) which can exceed 35% of the land area of the project. In order to provide meaningful contribution to the mixed use-residential project each representative land use must occupy at least 15% of the project’s land area and at least 15% of the project’s land area must be devoted to vertically integrated structures or civic uses or public spaces.

4.5.5 The Land Development Code shall include appropriate development standards and/or placed persons-to-dwelling unit conversion factors shall be utilized for congregate living facilities to allow for the consistent application of residential densities otherwise established in this element. The resulting application of density equivalents to proposed congregate living facilities shall be utilized to ensure that cumulative impacts upon surrounding residential land uses are reasonable and to ensure compatible densities between congregate living facilities and other residential land uses in the surrounding area. Consideration should be given to having conversion factors which vary depending on the land use designation, to ensure compatibility with surrounding areas. Congregate living facilities may utilize either a density conversion rate (number of beds per dwelling unit per gross acre) or the Floor Area Ratio (FAR) limits of a Future Land Use category.

Non-Residential

Neighborhood and Community Serving Uses

In order to recognize the suburbanization of Gibsonton, and to provide for the future expansion of show business uses, a future study should be conducted to determine if the boundary can be expanded or if additional areas could be added.

• The Land Development Code shall provide locational criteria to ensure compatibility with surrounding uses.

o Show business zoning and overlays outside of this boundary remain in effect and approval of this boundary is not intended to make these zonings and overlays non-conforming.

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Exhibit 4.6.2: Residential Show Business (RSB) Use Map – Future RSB uses may be considered with this boundary.

Commercial-Locational Criteria

Objective 4.7

To meet the daily shopping and service needs of residents, only neighborhood-serving commercial uses will be permitted within land use categories that are primarily residential or agricultural in nature. Intensive commercial uses (uses allowed within the Commercial Intensive zoning district) shall not be considered neighborhood-serving commercial. Such developments do not require a Future Land Use Map Amendment to a non-residential category provided they meet the criteria established by the following policies and all other Goals, Objectives and Policies in the Comprehensive Plan. The frequency and allowance of neighborhood-serving commercial uses will be different in the Urban Service Area than in the Rural Area due to the population density, scale and character of the areas.

Policies

4.7.1 In the Urban Service Area, locational criteria must be met to allow neighborhood-serving commercial uses in the following primarily residential land use categories:

• Residential Planned -2 (RP-2)
• Residential - 2 (RES-2)
• Residential - 4 (RES-4)
• Neighborhood Mixed Use-4(3) (NMU-4(3))
• Neighborhood Mixed Use-6 (NMU-6)
• Residential - 6 (RES-6)
• Suburban Mixed Use-6(SMU-6)
• Residential - 9 (RES-9)
• Residential - 12 (RES-12)
• Residential - 16 (RES-16)
• Residential - 20 (RES-20)
• Residential - 35 (RES-35)
• Any rural Future Land Use categories in the Urban Service Area

4.7.2 In the above land use categories, neighborhood-serving commercial uses,including office uses, can be considered to the maximum FAR permitted in eachFuture Land Use category in the following locations:

• 50% of the site must front along a roadway with a context classification ofsuburban commercial, suburban town or urban general contextclassification in the Hillsborough County Context Classification Map or theFlorida Department of Transportation Context Classification Map; or
• Within 1,000 feet of the intersection of roadways both functionally classified as a collector or arterial per the Hillsborough County Functional Classification Map. At least 75% of the subject property must fall within the specified distance (1,000 feet) from the intersection. All measurements should begin at the edge of the road right-of-way. The land area within this distance, as measured along both roadways, makes a quadrant (see graphic).

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Exhibit 4.7.2: Example road right-of-way measurement for Urban Service Area

4.7.3 Non-residential uses in the residential land use categories in the USA may also be considered if they meet one of the following:

• An isolated parcel of 10 acres or less fronting on an arterial or collector roadway that is unsuitable for residential development may be considered foroffice uses. The rezoning must be to a site plan-controlled district or to a zoningdistrict restricting uses to residential scale office.

• Sites which may be unsuitable may include but are not limited to:parcels altered due to the acquisition of adjacent land for public purposes or natural features (rivers, lakes or preservation areas) eitherof which may isolate a parcel, or if existing development has isolated aparcel along a roadway shown on the adopted Long RangeTransportation Plan. Parcels must be ten usable acres or less.

• Neighborhood-serving commercial uses that are integrated and connected aspart of a larger mixed-use development of at least 10 acres in size.

• Non-residential uses at the intersection of a major local roadway or a localroadway and an arterial or collector road. All measurements should begin atthe edge of the road right-of-way. A Planned Development established by the PEC ½ category shall be exempt from the locational criteria.

4.7.4 When planning the location of new non-residential developments at intersections meeting the locational criteria, a transition in intensity of non-residential uses shall be established which is compatible with the surrounding community character.

4.7.5 Criteria in the Rural Area

In the Rural Area, the amount and frequency of neighborhood-serving commercial uses will be limited by the criteria in Policy 4.7.6 in the following land use categories:

Rural Residential/Agriculture:

• Agricultural/Mining - 1/20 (AM-1/20)
• Agricultural - 1/10 (A-1/10)
• Agricultural/Rural - 1/5 (AR-1/5)
• Agricultural Estate - 1/2.5 (AE-1/2.5)
• Residential - 1 (RES-1)
• Residential Planned -2 (RP-2)
• Residential - 2 (RES-2)
• Any other Future Land Use categories in the Rural Area where Commercial Locational Criteria applies

4.7.6 Within 660 feet of the intersection of two roadways both functionally classified as a collector or arterial per the Hillsborough County Functional Classification Map. Neighborhood-serving commercial uses may be considered up to the following square footage at each quadrant of the intersection. Major local roadways may not be considered to meet this criterion. 75% of the subject property must fall within the specified 660 foot distance from the intersection. All measurements should begin at the edge of the road right-of-way.

• 2 lane and 2 lane – up to 20,000 square feet
• 2 lane and 4 lane – up to 30,000 square feet
• 4 lane and 4 lane – up to 40,000 square feet

4.7.7 Rural Design Standards

Provide standards where appropriate to integrate commercial developments into rural settings which will enhance the quality of the rural environment and provide appropriately scaled local serving goods and services and small scaled employment. These standards should include the following:

• Architecturally compatible with rural surroundings, and residential in appearance.
• Not more than two stories.
• Signage and lighting of rural character, at ground level, externally lit.
• Shared driveways
• Permeable parking, where appropriate
• Variable setbacks
• Massing of new structures will be compatible with the surrounding areas
• Cluster the most intense land uses toward the intersection, with lessintense uses, such as offices, professional services or specialty retail (i.e.antiques, boutiques) toward the edges