The conundrum of infrastructure improvements that's plaguing Apopka

Local governments have a conundrum in areas of mixed jurisdiction regarding planning and financing roadway infrastructure improvements. I know you are aware that when new subdivisions come along, road capacity is rarely expanded. For example, 300 residents came out last Monday to look at a potential new 600-acre development (Paulucci) along Vick and Ponkan roads.

Here we saw the problem again – no money offered by the developer, city, or county for external roadway infrastructure improvements. 

Orange County Commissioner District 2 Christine Moore

To look for solutions, I spent an hour with the county public works staff mapping manager George Shupp. I needed information on roads, right-of-way, and intersection responsibilities. I focused this column on Northern Apopka. I will come back with Southern Apopka soon.

 Here I found the conundrum again. For “functionally classified roads” (roads of high importance to the county), the city doesn’t have to request a transfer of ownership of the road. Few counties will improve a functionally classified roadway if a city has significantly annexed adjacent land. To top it off, the city doesn’t have the funding to increase capacity, either. Roadway construction is just cost prohibitive.

Can we work through these transportation funding deficits?

Orange County is already $5 billion behind on increasing roadway capacity under its jurisdiction. Residents have regularly voted against any kind of sales tax funding for roadway improvements. Plus, the county doesn’t realize any transportation impact fees from any new projects in a city. 

It is clear the City of Apopka can’t afford to widen Vick or Ponkan Road for the above-mentioned new Paulucci development.

To top all of this off, the state does not allow a municipality or county government to vote against a new development on sheer disdain for resulting traffic woes. The developer gets to pay mitigation fees which are rarely enough to increase capacity. Yes, here is another state pre-emption which is causing harm to our local communities. 

I also want to further elucidate Florida law about functionally of classified roadways.

Functionally Classified Roadways

 Orange County Responsibility and Authority 

1. Repair of potholes 
2. Resurfacing 
3. Curb repair 
4. Repair and cleaning of culverts, pipe systems, stormwater drainage inlets, ditch systems contiguous to the road, and carrying roadway stormwater runoff 
5. Painting of pavement markings 
6. Issuance of driveway permits 
7. Issuance of underground utility and right-of-way utilization permits for work done under the roadbed
8. Sweeping of road surface 
9. Bridge inspection and maintenance 

City Responsibility and Authority 

1. Establishment of all traffic regulations 
2. Installation and maintenance of traffic control signs and signals 
3. Construction, maintenance, and repair of sidewalks 
4. Mowing of all areas within the right-of-way 
5. Installation and maintenance of guardrails 
6. Issuance of right-of-way utilization permit for work not under the roadbed
7. Establishment of building setback lines 
8. Clearing or removal of trees within the right-of-way 

References: Chapter 316.006, 334.03, 335.04 

Let me further clarify responsibilities for functionally classified roadways in the northern area of District 2. 

Functionally Classified roads in the northern area of the city of Apopka

• Ponkan Road is a bit of a mixture of responsibilities. From Vick Road east to Evelyn, the county handles the pavement and drainage. All other aspects of this portion of Ponkan Road, like sidewalks, right-of-way, etc. of this segment belong to the city. From Evelyn to Rock Springs Road, this section of Ponkan belongs exclusively to Orange County Government.
• Plymouth Sorrento Road belongs to Orange County Government. The challenge for the county is again that most of the infrastructure pressure is the result of city approvals for new development. New development charges for transportation impact fees to the agency which governs the land. PSR is scheduled for complete resurfacing in 2026 & 2027. I’m also endeavoring to accelerate the Duke Energy lighting package which is funded along PSR. 

Completely county-maintained roadways (functionally classified and county)

• Rock Springs (Welch Rd north to Kelly Park)
• Wekiwa Springs Road
• Thompson Road
• Welch Road (Ustler east to Wekiwa Springs)
• Votaw Road (county line west to Oaks on the Lake)

Additional completely city-maintained roadways (northern)

• Vick Road
• Lester Road
• Lester Schopke (north of Highland to Lester)
• Kelly Park (Mt. Plymouth to Round Lake)

State-maintained roadways (FDOT)

• US 441
• SR 436

CFX-maintained roadways

• SR 429
• SR 451
• SR 453

Financing infrastructure improvements are incredibly difficult for all the jurisdictions.  My suggestions for determining the true cost of maintaining roads is influenced by a new tool recently approved by the voters of Orange County in the November 2024 charter reforms. Every project with this new tool can be evaluated to determine if the project makes sense fiscally for building new infrastructure and maintaining that infrastructure. 

I believe we shouldn’t build projects if tax revenues cannot sustain new infrastructure long term.  Finally, much more infrastructure pressure and potential density issues must be improved with developers. Planners should lay out projects closer to existing infrastructure.