Cocoa City Council Ordinance 02-2025: Four Corners Overlay District First Reading on November 10

The Cocoa City Council will hold a first reading public hearing on Ordinance No. 02-2025 on Tuesday, November 10, 2026, at 6:00 p.m. The ordinance would create the Four Corners Overlay District, a new zoning overlay for certain properties at the intersection of State Road 520 and U.S. Highway 1. It would set use lists and building and site design standards. A companion item, Ordinance No. 01-2025, would amend the city's Comprehensive Plan to fit the overlay. Both items are on first reading and are not final.

Where the Items Appear on the Agenda

Ordinance No. 02-2025 is Public Hearings item VI.2 on the Council's November 10 agenda, File ID 2026-958. Ordinance No. 01-2025 is item VI.3, File ID 2026-932.

Why the City Proposed the Overlay

The staff report states that in fall 2023, city staff found parcels at the intersection zoned Commercial Parkway (C-P) with a Mixed Use future land use. Under the Comprehensive Plan, C-P is not an applicable zoning district in the Mixed Use category. Staff states this creates a consistency issue, since development in the city must comply with the Comprehensive Plan.

The properties are also in the Cocoa Community Redevelopment Area. The draft ordinance calls the intersection a key gateway to Cocoa Village.

Under the draft ordinance, the overlay rules would take precedence over conflicting parts of the Zoning Ordinance, except the Local Health and Safety Codes.

How the Proposal Got Here

After a June 17, 2024 visioning workshop, on August 13, 2024, Council directed staff to allow a broad range of neighborhood based, small scale retail uses. Council members also said they did not favor car washes, liquor stores, smoke shops or gas stations in the overlay.

The Planning and Zoning Board recommended approval on September 10, 2025. At an October 14, 2025 first reading, landowners gave extensive public comment about property rights and effects on existing businesses. Council voted unanimously to table or postpone the items. Staff then met with landowners and held community meetings on February 11 and 18, 2026.

The staff report lists these changes made after those meetings.

• Neighborhood scale convenience stores with gasoline or fuel sales were added as a permitted use, with added design standards.

• New and used vehicle sales became a permitted use, excluding rentals and heavy equipment, with added landscape buffers.

• Bail bond agencies were added to the prohibited list, and check cashing and payday lending were excluded from permitted financial uses.

Staff also states the city prepared a Development Agreement and Covenant for owners who consent to the ordinance. It includes a waiver of possible claims related to adoption. Staff states two landowners have signed it so far.

Uses the Overlay Would Allow

The permitted uses include these.

• Mixed use buildings with multiple family residential or office uses over retail

• Restaurants, with bars and lounges allowed only as an accessory use

• Retail stores up to 30,000 square feet, not including automotive sales rooms

• Craft breweries and craft wineries with an accessory bar or lounge, subject to conditions

• Grocery stores, health care facilities, professional offices and gyms of 7,500 square feet or less

• New and used vehicle sales, with listed exclusions

• Neighborhood scale convenience stores with gasoline or fuel sales as an accessory use

Child care centers, food truck parks and multiple family dwellings would need special exception approval.

Uses the Overlay Would Prohibit

The prohibited list includes these uses.

• Car washes, automotive repair and standalone gasoline or fuel sales

• Liquor stores, beer and wine package stores, and bars and lounges

• Smoke shops, vape and tobacco dealers, and hookah lounges

• Pharmacies, medical marijuana treatment center dispensing facilities and apothecaries

• Self service storage, storage garages, motels, dry cleaning plants, and funeral homes

Any use not specifically or provisionally permitted would also be prohibited.

Building and Site Standards

The draft ordinance would allow buildings up to four stories or 60 feet. A fourth story would need to be set back at least 5 feet and no more than 10 feet from the third story. Front setbacks would be at least 10 feet and no more than 15 feet. Parking would not be allowed between the front of a building and the abutting street.

Impervious coverage would be capped at 75%, or up to 95% with certain added features. Signs would be limited to wall signs and monument style ground signs. Pole signs, electronic signs and feather signs would be prohibited. Building designs would follow one of four listed styles: Old Florida, Mediterranean Revival, Modern or Colonial.

Convenience stores selling fuel would need corner lots, a 3,000 square foot minimum building and 500 feet of separation from other fuel sale properties.

What It May Mean for Existing Properties

Owners, tenants and businesses within the overlay boundary may be affected. Exhibit B of the ordinance lists the tax parcel numbers in the district.

Under the draft ordinance, legal nonconforming uses and structures may generally continue under Article X of the Zoning Ordinance. They could expand by up to 30% of building floor area without meeting the overlay standards. Minor developments, such as some changes of use or expansions of more than 30% but less than 50%, would need to meet the landscaping, signage, pedestrian access, visual screen and site design rules. Major developments, including new development needing site plan approval and expansions or replacements of 50% or more, would need to meet the full overlay.

The Companion Comprehensive Plan Amendment

Ordinance No. 01-2025 would amend Figure FLU-1 of the Future Land Use Element. It would add C-P zoning within the overlay as an applicable district in the Mixed Use category. Staff states the future land use category would stay Mixed Use. Staff states C-P properties outside the overlay would not be affected. Staff recommends approval to transmit the amendment under expedited state review.

Ordinance No. 02-2025 states that it would take effect only when Ordinance No. 01-2025 takes effect. If Ordinance No. 01-2025 does not become effective, Ordinance No. 02-2025 would be null and void.

What Happens Next

Staff recommends approval of Ordinance No. 02-2025 on first reading. A second reading would follow before adoption.

Under section 163.3184(3), Florida Statutes, a plan amendment is sent to reviewing agencies after the first hearing. The local government then holds a second hearing on adoption. An adopted amendment generally does not take effect until 31 days after the state land planning agency notifies the city that the package is complete.

How to Take Part

The agenda states that all interested parties may attend in person. Persons needing assistance under the Americans With Disabilities Act should contact City Clerk Monica Arsenault at (321) 433-8488 at least 48 hours before the meeting. Under section 286.0105, Florida Statutes, the agenda advises that a person who appeals a Council decision will need a record of the proceedings.

Interested persons may submit written comments or questions before the meeting by email to cityclerk@cocoafl.gov.

The Cocoa City Council meets Tuesday, November 10, 2026, at 6:00 p.m., at City Hall, 65 Stone Street, Cocoa, FL 32922.