Downtown Master Plan - City of Eustis

JULY 2008 

THE COMMUNITY VISION 

PUBLIC OPEN SPACE AND THE 

WATERFRONT 

LAND USE, URBAN DESIGN 

& DESIGN GUIDELINES 

TRANSPORTATION PLANNING

acknowledgments 

The Eustis Master Plan was developed by the people of City of Eustis, City of Eustis Staff, 

and lead consultant Glatting Jackson Kercher Anglin, Inc. A special thanks goes to all the 

individuals that volunteered their time for interviews, workshops, and sessions. 

CITY COMMISSION 

Mayor Evelyn H. Smith, Seat 3 

Vice Mayor Scott M. Ales, Seat 1 

Commissioner Jonnie C. Hale, Seat 5 

Commissioner Karen LeHeup-Smith, Seat 2 

Commissioner James T. Rotella, Seat 4 

CITY OF EUSTIS 

Paul Berg, City Manager 

John Schneiger, Assistant City Manager 

John Futch, Public Works Director 

Jim R. Myers, Jr., Finance Director 

Dianne Kramer, Development Services 

Richard Hoon, Community Relations 

Fred A.M. Cobb, Police Chief 

Roy Tremain, Fire Chief 

STEERING COMMITTEE 

Paul Berg, City Manager 

John Schneiger, Assistant City Manager 

John Futch, Public Works Director 

Jim R. Myers, Jr., Finance Director 

Fred A.M. Cobb, Police Chief 

Steven Benetz 

Ramah Wagner 

Collen Rotella 

Kace Montgomery 

Mary Harris 

Wayne Carter 

Kevin Jenness 

John Roberts 

Frank Bartle 

John Buxman 

Gwendolyn Manning 

Bryan Broomfield 

Jack Prickett 

DOWNTOWN EUSTIS MASTER PLAN 

DESIGN TEAM 

GLATTING JACKSON KERCHER ANGLIN, INC. 

John Paul Weesner, Project Manager 

Peter C. Sechler, Principal 

Billy Hattaway, Traffic Engineering 

Tara Salmieri, Senior Planner 

Jane Lim-Yap, Senior Urban Designer 

Jonathan Mugmon, Signage and Wayfinding 

Leah Mader, Urban Designer 

REAL ESTATE RESEARCH CONSULTANTS 

Owen Beitsch, President 

Tom Kohler, President 

Jordan Cook, Market Economist 

GAI CONSULTANTS 

Mark Sweeney, Project Engineer 

HALCROW, INC. 

Jim Marino, Vice President 

Simon Burchett, Senior Marina Engineer 

SPECIAL THANKS TO: 

Eustis Main Street 

Eustis Historical Society 

Lake Eustis Area Chamber of Commerce 

Lake Eustis Institute 

Lake Community Foundation 

Downtown Merchants Association 

Bay Street Players 

Lake Eustis Museum of Art 

Lake Eustis Sailing Club 

Inland Lake Railways 

Lake-Sumter Metropolitan Planning Organization 

Tindale Oliver Associates 

University of Florida - Center for Building Better 

Communities

contents Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . 4-6 

Project Goal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 

Public Meetings and Common Visions . . . . . . . . 7 

Design Principles and and Objectives . . . . . . . . . . . . . . . 8-9 

The Master Plan — “Three Phases” . . . . . . . . . . . . . 10-11 

Phase One . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12-21 

Program the Waterfront . . . . . . . . . . . . . . . . 12 

Walkability and Beautification . . . . . . . . . . 13 

Streetscapes and Connectivity . . . . . . . .14-16 

Infrastructure . . . . . . . . . . . . . . . . . . . . . . . . . 17 

Urban Design Standards . . . . . . . . . . . . . . . . 18 

Marketing the Downtown. . . . . . . . . . . . 19-20 

Developer’s Toolkit . . . . . . . . . . . . . . . . . . . . 21 

Phase Two . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22-23 

Eustis Marina . . . . . . . . . . . . . . . . . . . . . . . . . 22 

Infill Residential and Affordable Housing . 23 

Phase Three . . . . . . . . . . . . . . . . . . . . . . . . . . . 24-27 

Catalyst Sites . . . . . . . . . . . . . . . . . . . . . . 24-26 

Two-Way Conversion of Bay and Grove . . 27 

Conclusions — Action Items . . . . . . . . . . . . . . . . . . . . 28 

Glatting Jackson Kercher Anglin, Inc. - Digital Project Database CD . . . . . . . . Appendix A 

Real Estate Research Consulting - Market Opportunities Assessment . . . . . . Appendix B 

GAI Consultanting - Stormwater Master Plan Technical Memorandum . . . . . . Appendix C 

Halcrow, Inc. - City of Eustis Downtown Masterplan Waterfront Concept . . . . Appendix D

executive summary 

EXECUTIVE SUMMARY 

The City of Eustis has completed a citizen-driven master planning study for the Downtown. This 

planning effort is intended to build upon the pre-existing community vision and provide a broad 

foundation for public consensus on strategic actions to implement the vision. The City of Eustis sits 

in a unique location on the shores of Lake Eustis, within the “Golden Triangle”, along with Tavares 

and Mt. Dora. Eustis has seen significant decline in its Downtown commercial and retail economic 

vitality and this Master Plan builds on Eustis’ strengths and addresses emerging redevelopment 

opportunities to ensure a diverse future as an urban center serving the needs of the City’s residents 

and its visitors. 

The Master Planning process provided a community forum for discussing these issues and 

opportunities. The process was guided by a Steering Committee made up of City Staff and 

representatives from local businesses, community organizations, and neighborhoods. In addition to 

this committee, numerous one-on-one stakeholder interviews and three public meetings provided 

the Eustis citizens a forum for public discourse. Based on these discussions and previous visioning 

efforts, a mission statement was adopted: 

To create a Master Plan that correlates the desired physical 

vision with market opportunities, desired public realm 

objectives, an adequate transportation system, good urban 

form, and appropriate land-use and regulatory principles, 

including strategic actions to achieve results. 

PROPOSED FERRAN PARK IMPROVEMENTS AND EXPANSION 

4 CITY OF EUSTIS | DOWNTOWN PLAN


In addition to this mission statement, seven planning principles for building a better Downtown were 

established to help direct the Master Planning process. Those principles are: 

• Capitalize on Strategic Downtown Parcels 

• Connect to the Waterfront 

• Leverage the Assets (Historic Downtown Lakefront) 

• Balance the Pedestrian Needs and Transportation Needs 

• The City Should be Walkable and Beautiful 

• Reconnect the Neighborhoods 

• Create a Regulatory and Economic Structure that Supports 

and Markets the Vision 

With these principles guiding the process, 

the Master Plan envisioned the importance 

of developing livable solutions to various 

issues affecting the City today. Livable 

solutions means that residents can live, 

work, shop, and play in a Downtown that 

is walkable and convenient. 

To achieve this, the Master Plan suggests 

new thinking about infrastructure, 

transportation planning, affordable 

housing, and residential densities. 

In order to accomplish this new thinking 

without losing the quaint, historic 

nature of the Downtown, a series of key 

recommendations were developed as 

“action items” that are intended to be the 

first and continuing steps the City can take 

in order to achieve the full capacity of the 

citizen-based vision. 

PROPOSED GROVE STREETSCAPE 

• Enhance the Downtown Address 

• Focus on the Neighborhoods 

• Establish the Property Framework 

• Establish the Social Pattern – Coming to Downtown 

• Market Downtown to the Development Community 

• Defend Your Position 

• Neighborhood Reinvestment 

• Downtown Residential Densification 

CITY OF EUSTIS | DOWNTOWN PLAN 5


This Master Plan report is summarized 

beginning with the public process and 

citizen input. The report then walks 

through the primary planning principles, 

and breaks down the Master Plan into 

three phases. Those three phases are 

discussed in detail and the report closes 

with a conclusion and the next steps 

required for action and implementation. 

The City of Eustis is billed as “The City 

of Bright Tomorrows” and this has never 

been truer. The Master Plan builds on 

the strong citizen-based community 

vision and goes further to realize the full 

potential of the Downtown. 

The Master Plan anticipates the changing Land Development Regulations and the potential market 

demands within the City. The outcome is a consensus on the importance of reinvestment into both 

the public realm and private property. This will require bold new initiatives to plan, incentivize, and 

finance many public enhancements and redevelopment activities. Partnerships between public 

agencies, private businesses, and the community will be necessary to ensure success. Downtown 

Eustis has tremendous potential as a regional center for urban living, fostered by its rich community 

built on the City’s unique arts, culture, and environmental resources. With a coordinated plan and 

the right tools for success, Downtown Eustis can ensure a bright tomorrow as a livable city in which 

young professionals, retirees, families, and tourists will come to live, work, play, and visit. 

6 CITY OF EUSTIS | DOWNTOWN PLAN 

PROPOSED MAGNOLIA STREETSCAPE 

AERIAL PERSPECTIVE SHOWING NEW MARINA, DOWNTOWN REDEVELOPMENT, 

AND AN ENHANCED WATERFRONT

Study Area 

• North Boundary 

SR19 & CR 452 

• South Boundary 

Lakeview Ave 

• West Boundary 

Lake Eustis 

• East Boundary 

Mary Street 

THE STUDY AREA 

STEERING COMMITTEE WALKING AUDIT 

Using the common visions from these efforts, the 

design team conducted a walking audit with the 

City-appointed Steering Committee. This walking 

audit yielded valuable on-site realizations about 

the needs and desires of the City. 

background and summary the planning process 

THE MASTER PLANNING PROCESS 

The design team reviewed the previous 

visioning efforts made by the City and 

various consultants including the Strategic 

Plan 2007-2012-2022, Eustis Community 

Visioning Meetings conducted from April 

to May of 2007, and Building Bridges for 

Economic Development – Lake County, FL. 

Various other key stakeholders, including all 

the Commissioners and other members of the 

community, were interviewed and their input 

was incorporated into the study. 

In addition to several stakeholders and Steering 

Committee meetings, three public meetings 

were held, at which input in various forms was 

accepted. Over the course of these meetings 

it is estimated that over 120 Eustis residents 

attended. The second public meeting included 

an interactive session where participants were 

asked to place ‘dots’ on themes that were most 

important to them. 

These themes were later ranked and organized 

into draft themes that formed the basis of the 

design principles and ultimately framed the 

master plan. 

PUBLIC MEETINGS AND COMMON VISIONS 

• Promote Mixed Uses In and Near the Downtown 

• Encourage “Mom & Pop” Stores 

• Promote the Arts 

• Encourage Pedestrianism, Walkability, and Park 

Space 

• Take Advantage of Lake Eustis 

• Protect the Existing Character 

• Increase Density in Appropriate Areas 

• Alternative Options for the “Corridors” (US 19 & 

SR 44) 

• Become Green and Sustainable 


principles and objectives 

INTRODUCTION Based on an existing conditions analysis and the citizen-driven themes, the 

design team formed seven fundamental design principles to guide the Master Plan effort. These 

principles are as follows: 

Capitalize on Strategic 

Downtown Parcels 

Downtown Eustis has a few key parcels that, 

if redeveloped within the vision of the master 

plan, would quickly re-position the City center 

as a livable, walkable place. 


Leverage the Assets 

(Historic Downtown Lakefront) 

The regional uniqueness of 

Eustis is derived from the 

historic downtown waterfront 

setting. This aspect can be 

leveraged to attract the kind of 

development that is consistent 

with the existing pattern, while 

simultaneously balancing 

the future infrastructure and 

population needs. 

Connect to the Waterfront 

The waterfront is Eustis’ biggest asset and 

therefore should be the primary focus of the 

downtown master plan. Through streetscaping 

and other methods, the value and richness of 

the waterfront should be extended easterly 

into the downtown core and residential 

neighborhoods.

The City Should be 

Walkable and Beautiful 

A common theme from the citizen input was the 

general improvement of the beauty and walkability 

of the City. This should be achieved through an 

overall focus on stronger and healthier pedestrian 

environments and the implementation of more 

extensive street tree canopy. 

Reconnect the 

Neighborhoods 

The in-town residential neighborhoods are the lifeblood 

of the Downtown core. These neighborhoods should 

be reconnected through continuous streets, adequate 

pedestrian facilities, and viewsheds to Lake Eustis. 

principles and objectives 

A balance must be struck between the pedestrian needs 

and general livability and the demands of the roadways 

to enhance the overall community vision. 

Balance the Pedestrian Needs 

and Transportation Needs 

In order to ensure the success of the citizen-based vision, 

the Downtown Eustis Master Plan should be reflected in 

a regulatory structure that is implementable within a 

market-based economic strategy. 

Create a Regulatory and 

Economic Structure that 

Supports and Markets the 

Vision 


the master plan — “three phases” 

The Downtown Eustis Master Plan is broken into three phases to reflect an implementable strategic 

action plan. 

10 CITY OF EUSTIS | DOWNTOWN PLAN

the master plan — “three phases” 

The second phase builds upon the 

implementation of Phase I and focuses on 

a new marina development to capitalize on 

Lake Eustis as a major asset. The marina 

is broken into two phases for a total of 48 

new wet slips in Downtown. Phase II also 

considers the rebounding housing market 

and suggests a focus on developing infill 

residential of various types in and around the 

core downtown and in-town neighborhoods. 

The beautification and livability efforts in 

Phase I will make this in-town residential more 

attractive and succeed in the goal of bringing 

more residents into the Downtown. 

Phase I 

The first phase of the Master Plan involves 

items that can be controlled and modified by 

the City. This includes general beautification, 

pedestrian crossings and general walkability, 

new streetscapes and street tree plantings, 

required infrastructure, and a stormwater 

master plan. Phase I also includes a focus on 

updated Downtown signage and wayfinding, 

urban design standards, marketing 

and development efforts, and strategic 

partnering with regional entities to achieve 

broader based efforts. 

Phase II 

Phase III 

Phase III considers that the residential market 

has rebounded and that the City has positioned 

itself well through Phases I and II. Phase III 

examines three catalyst sites that offer the most 

development potential for a higher density, 

mixed-use project. The sites were selected 

based on cost to redevelop, likelihood of 

change, and overall redevelopment potential. 


the master plan — phase one 

PROGRAM THE WATERFRONT 

North End Marina 

The north end of the contiguous waterfront would be 

anchored by the Marina which would serve more active 

boating uses on the Lake such as motor boats and jet skis. 

Focusing this use on the north side of the park separates 

it from the more passive uses to the south, but it still is 

within reasonable walking distance to the Downtown. 

Extend the Park to Bay Street 

The Lake Walk would remain in place and be enhanced by 

extending additional park areas all the way to Bay Street. Some 

quantity of off-street parking would remain adjacent to the Crazy 

Gator’s restaurant, but other areas of parking would convert to 

green space. The Eustis Main Street building would also remain, 

but become a piece of park architecture or a future transit station. 

Enhance Ferran Park 

One of the most important comments from the public meetings was 

to maintain the Ferran Park viewsheds from the park out to the 

Lake. The Master Plan calls for making improvements to Ferran Park 

including more groundcover and colorful shrubs, as well as other 

site amenities like lighting, swings, and uniform site furnishings. 

Consider Expanding the Park through Sharp’s Park 

As Sharp’s Park redevelops, there is an opportunity to extend Ferran 

Park to Sunset Island Park.This will create a new place for 

other park amenities, like walking trails, large open 

spaces for gathering or watching fireworks, and 

even a small stage area for children to play. 

Passive Park 

Kayaks, 

Canoes 


Active Marina 

Extend the 

Park 

Ferran Park 

Viewsheds 

Expand Ferran Park 

Refocus Sunset Island Park for Passive Recreation 

The existing Sunset Island Park could be reprogrammed 

to accommodate more passive uses 

on the Lake such as kayaking and canoeing. Walking 

trails would connect the existing tennis courts and 

play areas with the rest of the waterfront amenities, 

creating a continuous circuit from Sunset Island Park 

to Ferran Park, to the Lake Walk, to the History Museum, 

to the Community Center, and finally to the new Marina.


WALKABILITY & BEAUTIFICATION 

BEAUTIFICATION 

The first phase of the Master Plan entails basic beautification efforts in and around the Downtown 

Core. These efforts will greatly improve property values, but moreover will create a more pleasant 

and unique identity for the Downtown which will begin to set it apart from other cities in the 

region. 

PROGRAM THE WATERFRONT 

The Lakefront is one of the biggest assets 

in the City. However, currently it’s underprogrammed 

and therefore underutilized. 

Eustis needs a “Great Park” and the 

waterfront presents a unique opportunity. 

Great Parks are centers of community life 

composed of discrete outdoor rooms, 

shaded paths, and garden architecture. 

They are inclusive social hubs, relevant 

on “every” days and on “special” days, 

activated by people who are playing, 

watching, resting, eating, listening, and 

learning. They are understandable places 

of civic pride, beauty, and gentility. 

WALKABILITY 

In addition to adding beauty to 

the Downtown Core, the City 

must become a more walkable 

place. Installing of street trees 

and changing the section of some 

roadways will slow drivers through 

the Downtown while continuing to 

efficiently accommodate vehicles. 

The following will further enhance 

the Downtown Core: 

• Planting Street Trees 

• Consistent Street Furniture on “A” 

Streets 

• Wider Sidewalks 

• Bike Lanes 

• On-Street Parking 

• Planting Native, Xeric, and Flowering 

Plants on “A” Streets 

• Improve or Upgrade Crosswalks 

• Upgrade or Repair Crosswalks Ramps 

• Canopy or Shade Structures Over 

Business Entrances 

EXISTING GROVE STREET - NOT WALKABLE 

PROPOSED GROVE STREET - VERY WALKABLE 



STREETSCAPES 

PROPOSED BAY STREET 

PROPOSED GROVE STREET 

SLOW DOWN THE TRAFFIC 

Streetscape elements will help to slow traffic 

and create a more walkable Downtown. The 

City also could request that the posted speed 

limit of 35 MPH be lowered in the Core (Bates 

Avenue to Orange Avenue) to 25 MPH and 30 

MPH north and south of those boundaries. 

While this would increase the travel time 

through Downtown Eustis by approximately 30 

seconds, the walkability and pedestrian safety 

would significantly increase. 


BAY STREET AND GROVE STREET 

The existing Bay St. and Grove St. have very wide 

sections. The Master Plan proposes narrowing the 

lane to 11’-0” and increasing the on-street parking 

spaces to a width of 9’-0”. While this is wider than 

typical standards, it allows the bulb-out areas to 

extend further and thereby slow down traffic. 

The section would include new street trees in 

planters or grates in the Downtown Core and in 

tree lawns outside the Downtown Core. Period 

lighting in the Downtown Core can highlight the 

historic qualities of Eustis. This could be combined 

with appropriate signage and banners within the 

Downtown Core. 

The sidewalk areas would be 7’-0” in some areas 

and grow to 13’-6” in areas of frontage retail, where 

retailers could place tables and chairs or other 

amenities in front of their stores.

ROAD CONNECTIVITY 

Overall walkability in the Downtown can be 

increased by reconnecting certain streets that 

have been broken over time. In the Downtown 

Core, three specific connections are identified: 

CONNECT BATES AVENUE 

(TO SR 44) 

CONNECT LAKESHORE 

TO ORANGE AVENUE 

CONNECT 

MCDONALD 

AVENUE 


CONNECTIVITY 

TRAFFIC CALMING TOOLKITS 

As more roads get connected into the 

Downtown, the adjacent neighborhoods 

need to be taken into account. There 

are many different ways to “calm” traffic, 

which means making cars and trucks drive 

slower while they are in places where they 

should be driving slower. A “chicane”, at 

top, and a “mini-circle”, at bottom, are a 

couple of the many resources available to 

calm traffic. 

PEDESTRIAN CROSSING 

The walking audit conducted early in the design process showed that many of the pedestrian 

crossings in the Downtown Core are in disrepair or do not meet current American with Disabilities 

Act (ADA) standards. Focusing on the core intersections including Magnolia Ave. and Bay St. will 

help increase walkability and encourage more people to experience more of the Downtown. Various 

methods available to improve these crossings include: bricked crossing points, raised intersections, 

colored concrete at the center of each intersection, and signage and wayfinding. 



STREETSCAPES 

EXISTING MAGNOLIA & EUSTIS 

OPTION 1: ANGLED & PARALLEL 

OPTION 2: PARALLEL BOTH SIDES 

The second option would remove 

angled parking altogether and replace 

it with parallel parking on both sides 

of the street. This would allow for a 

two-way roadway while increasing 

the sidewalk widths from 7’-0” to 

13’-6”, which would provide ample 

room for tables and chairs, walkways, 

and other site furnishings. 

Both options assume a loss of 18% 

to 30% of overall on-street parking. 

However, this could be offset by better 

utilization of the public parking garage 

and improved pedestrian crossings at 

Orange Avenue and Eustis Street. 


MAGNOLIA AVENUE AND EUSTIS STREET 

Magnolia Avenue and Eustis Street are the historic “Main 

Streets” for Downtown Eustis and contain many of its 

unique shops and restaurants. Currently, the one-way road 

configuration limits the activity and retail potential of this 

main street. The Master Plan offers two alternatives that 

would need further study. 

The first option removes angled parking from one side 

of the block and replaces it with parallel parking and an 

additional travel lane. This would allow for Magnolia to be 

two-way and also still reserve some on-street parking. The 

Plan also calls for back-in angled parking to replace the 

current angled parking. Back-in angled parking is safer, 

not only for the driver, but also for pedestrians and cyclists 

using the road. 

The other benefit is that the sidewalk area would increase 

from 7’-0” to 9’-0” giving more space for shoppers and 

retailers. 

ORIGINAL SECTION OF MAGNOLIA AVENUE IN 1926. 

MAGNOLIA AVENUE - TWO-WAY TRAFFIC, WIDER 

SIDEWALKS, AND BACK-IN ANGLED PARKING

STORMWATER MASTER PLAN 

DIAGRAM 

INFRASTRUCTURE 

INFRASTRUCTURE 

As part of the Master Plan, infrastructure issues were raised and concerns about the impact of 

future development were expressed. A more detailed analysis of the infrastructure conditions and 

recommendations can be found in Appendix C – GAI Technical Memorandum. 

Pond 

(12) 

Downtown 

Blocks 


MASTER STORMWATER PLAN 

In order to make the Downtown Core more appealing 

to potential developers and to solve some existing 

infrastructure problems, such as Lake Eustis water quality 

and flooding at Bay Street and Orange Avenue, the design 

team considered a stormwater master plan. In this plan, 

stormwater from streets and blocks would be re-directed 

away from Lake Eustis and into a treatment pond north 

of Downtown and adjacent to Orchid Lake. Preliminary 

engineering drawings suggest this pond could have a total 

volume of 164,000 cubic feet. 

Because of this total volume, twelve Downtown blocks 

would not require on-site retention. Not only does this 

benefit the potential for redevelopment on those blocks, it 

also redirects the runoff water away from Lake Eustis. The 

runoff water in the pond would receive primary treatment 

through selected plants in the pond. Eventually, the water 

would return to Lake Eustis, but in a much cleaner state. 

TYPICAL CITY RETENTION POND 

STORMWATER PARK AS COMMUNITY RESOURCE 

The stormwater pond serves a great need in terms 

of infrastructure, but it also fills a community need: 

parks and open space. Many valuable park elements PROPOSED STORMWATER PARK RETROFIT 

such as walking and jogging trails, exercise stations, 

benches, tot lots, swings, and other active-use elements can be incorporated into the Stormwater 

Park. Not only can this be done at the proposed Stormwater Park, but the City can also retrofit 

existing stormwater ponds in the community to make them more park-like. In addition to improving 

the quality of life in the neighborhoods, property and social values will also increase. 



URBAN DESIGN STANDARDS 

TYPICAL EXAMPLE (MIXED-USE BUILDING LOT) FROM THE 

PROPOSED LAND DEVELOPMENT REGULATIONS 

GREEN STREETS 

Many cities around the country are 

beginning to install Green Streets. 

These streets capture run-off water 

from the street and return it to the 

soil as quickly as possible. Tree 

lawns serve as the initial capture 

area. These areas are planted with 

water-tolerant trees and shrubs 

that also pull pollutants from the 

water before it is absorbed into 

the soil. This relieves the burden of 

trying to capture the run-off from 

streets and potentially eases the 

requirements for the Stormwater 

Park. The City should implement 

“Green Streets” where possible for 

all new streetscapes. 


URBAN DESIGN STANDARDS 

AND COMPREHENSIVE PLAN 

MODIFICATIONS 

The current regulations and 

Comprehensive Master Plan are 

fairly suburban in nature and are not 

in line with the community vision 

expressed through the various 

stakeholder and public meetings. 

The current densities and intensities 

allowed, as well as the allowable floor 

area ratio, result in a development 

pattern that does not maximize 

the full efficiency of potential 

redevelopment blocks. 

Currently, the City is engaged in 

reformatting the Land Development 

Regulations that will focus on 

building form and massing as well 

as lot layouts and setbacks to 

achieve a building envelope, as 

opposed to specific floor area ratio 

requirements. 

These modifications will make 

the Downtown more livable and 

walkable, and will begin to match 

future development with the historic 

nature of Downtown, but as well as 

the desired vision of the citizens.


MARKETING THE DOWNTOWN 

The final piece of Phase I is to begin a new approach to marketing Eustis and specifically the 

Downtown. There are many marketing projects that are consistent with the need for beautification 

and greater walkability, but others have to do with strategic positioning. 

TYPICAL EXISTING 

DECORATIVE, FDOT, AND 

REGULATORY SIGNAGE IN 

EUSTIS 

The Master Plan suggests generating a consistent and 

well-designed signage and wayfinding master plan. 

The first piece of this plan is to create one cohesive 

identity or brand for the City and the Downtown. 

Once this is established, a palette of signage can 

be applied in strategic places to serve the needs 

of the drivers, pedestrians, locals, and visitors. In 

addition to vehicular and pedestrian signs, gateway 

signs should be installed at the major entrances to 

the City. These signs can be unique and potentially 

have an interchangeable portion to announce future 

events or important social and cultural happenings. 

WAYFINDING “PALETTE” OF SIGNAGE 


SIGNAGE AND WAYFINDING 

The existing signage and wayfinding in the City is a potpourri 

of logos and different sign types that do not comply with 

ADA, are misplaced in some cases, and occasionally are 

inconsistent with the historic nature of the Downtown. Florida 

Department of Transportation (FDOT) regulatory signs are 

sometimes cluttered with non-regulatory signs, adding to the 

overall inconsistency. Eustis has standard issue regulatory 

signs; however, those signs can be unique while still meeting 

FDOT standards. 

EXISTING GATEWAY FROM US 441 

PROPOSED NEW GATEWAY 

EXAMPLE HISTORIC IDENTITY SIGN 




TAVARES 


FORM STRONG REGIONAL RELATIONSHIPS 

The City of Eustis would benefit greatly from 

forming stronger regional relationships with Lake 

County and the neighboring cities in the Golden 

Triangle: Tavares and Mt. Dora. A potential 

outcome would be a regional commuter rail. 

MOUNT DORA COMMUTER RAIL 

The railroad tracks north of Eustis have been 

removed, which makes Eustis the northern-most 

point on a potential commuter rail line. With the 

existing rail running through Downtown, adjacent 

to Ferran Park, and some existing structures like 

the Eustis Main Street Building, Eustis would be 

well-positioned to become the northern hub of the rail line. Regionally, riders from the north, west, 

and east would come to Eustis to travel to destinations south including Orlando and the theme 

parks and attractions. 

COORDINATED COMMUNITY EFFORTS 

The City of Eustis hosts many great social and cultural 

events. The City has a unique History Museum, a great 

theater troupe in the Bay Street Players, and a wonderful 

museum in the Lake Eustis Museum of Art. In addition, the 

City sponsors many large events including the Washington’s 

Day Parade and various events on the waterfront. 

The City should consider hiring an Event Coordinator 

whose primary responsibilities would be to orchestrate 

cultural events in the City, as well as coordinate community 

organizations in support of these events. Citizens will enjoy 

the events, businesses will thrive on the visiting crowds, and 

Eustis will build a reputation for being a livable, walkable, 

and fun place. 

THE ALICE MCCLELLAND MEMORIAL BANDSHELL AT 

FERRAN PARK 

SINCE 1902, EUSTIS HAS 

CELEBRATED THE WASHINGTON’S 

DAY PARADE 

THE LEMA SHOWCASES 

CONTEMPORARY ART 

THE CLIFFORD HOUSE 

HOLDS THE HISTORICAL 

SOCIETY’S COLLECTION 

THE BAY STREET PLAYERS 

ARE AN AWARD-WINNING 

THEATER TROUPE

DEVELOPER’S TOOLKIT 

Another tool used by many cities in marketing their 

downtowns is a “Developer’s Toolkit”. This toolkit 

contains information related to the vision of the City and 

highlights the key initiatives, demographic information, 

public investment programs, and specific contact 

people within the City to provide a transparent process 

for development. This would be a powerful document 

for people and businesses looking to invest in Eustis. 

With such a toolkit, the City could translate the vision 

of the Master Plan to focus those development efforts 

into something that the community can embrace. A 

Developer’s Toolkit could include: 

PLACE MAKING AND ADDRESS 

Many toolkits begin with information piece about the 

Downtown and the elements that make it unique and 

special. A vision statement and key initiatives are 

usually included to describe the future direction of the 

City. 


DEVELOPER’S TOOLKIT 

Developer’s Toolkit 

• Place Making and Address 

• Regulatory/Entitlements 

• Utilities and Infrastructure 

• Stormwater 

• Environmental Cleanup (Brownfield Sites) 

• Land Assembly and Catalyst Sites 

• Land Costs and Available Sites 

• Structured Parking 

REGULATORY/ENTITLEMENTS 

Describing existing and desired entitlements can help build surety between the development 

community and the City. Also, regulatory changes can be advertised to potential developers that 

may be more attracted to denser, in-town development options 

UTILITIES AND INFRASTRUCTURE 

Many cities describe their existing capacity or promote public work projects that could help spur 

development. Also, describing a transparent process or expectation of developers when it comes 

to contribution to infrastructure will also create more surety between the developer and the City. 

STORMWATER 

The City can market their efforts to create stormwater master plans that would help entice developers 

to build where there are limited needs for on-site retention. 

ENVIRONMENTAL CLEANUP (BROWNFIELD SITES) 

By identifying brownfield sites and beginning the process to clean them, the City can market this 

opportunity to developers who won’t need to pay for the cost to remediate the sites. 

LAND ASSEMBLY AND CATALYST SITES 

By listing specific sites or helping with land assembly, the City can make sites in the Downtown 

more appealing to potential developers. This can also help the City maintain control over critical 

development sites. 

LAND COSTS AND AVAILABLE SITES 

Many municipalities advertise available sites within their downtown to help facilitate redevelopment. 

By listing the information available on the public tax roll, the City can help provide information for 

potential developers looking to invest in Downtown Eustis. 

STRUCTURED PARKING 

Many cities also participate in attracting redevelopment by offering to partially pay for structured 

parking. As a quid pro quo, the City can reserve a certain amount of spaces for public use, while 

providing the developer with the needed spaces for higher density projects. 


the master plan — phase two 

MARINA 

At the north end of the Downtown Core, a two-phase 

marina is proposed. In the first phase, the City would 

take advantage of the 20 to 25 slips already permitted by 

Army Corps of Engineers and build a modern marina that 

would capture Eustis’ portion of the growing wet boat 

slips for the Lake County Region. (See RERC’s Market 

Analysis – Appendix B) 

The northern portion of the Downtown Core is a good 

location for the marina due to its deeper water and the 

adjacent City-owned properties. The first phase would 

include 24 wet slips, a new boat ramp, a clubhouse with 

restrooms and a concessions building (for bait and tackle, 

as well as, some food and other sundries), and 24 car or 

trailer parking spaces. 

The second phase would include an additional 24 wet 

slips, dry stack storage for 45 boats, and the possibility 

for an expanded site that could include a restaurant 

and additional parking. Additional detail on the marina 

can be found in Halcrow Inc.’s Marina Technical Memo – 

Appendix D. 


Eustis Marina 

- 1st Phase – 24 slips 

- Boat Ramp 

- Concessions, Clubhouse 

- 24 Car/Trailer Parking Spaces 

- 2nd Phase – 24 Slips 

- Dry Stack Storage – 45 Boats 

- Possible Restaurant 

- Additional Parking 

2nd Phase 

1st Phase

As the residential market begins to balance out, 

infill residential will be an important focus for 

the Downtown Core. Bringing more residential 

into the Downtown is imperative for a healthy 

retail market and the fastest way the City can 

generate a larger residential population in 

the core. This residential can take the form 

of: attached condominiums, live/work units, 

artist-in-residence lofts, two-to-three story 

townhomes, multi-level apartments, and 

small-scale, mixed-use residential. These 

kinds of denser residential can be built on 

smaller lots or combined lots. The Community 

Redevelopment Agency (CRA) can play an 

important role in helping to accumulate and 

assemble these properties while advertising 

the redevelopment potential. 

In addition to focusing on infill housing, the 

City can to incentivize residential to make it 

affordable. There are many different methods 

for encouraging affordability including the 

items listed in the adjacent table. 

MIXED-USE RESIDENTIAL 

LIVE/WORK HOUSING 

2-3 STORY CONDOMINIUMS 

the master plan — phase two 

INFILL RESIDENTIAL 

LOW-INCOME HOUSING TAX CREDIT (LIHTC) 

LIHTC, a federal program administered by the 

Florida Housing Finance Corporation, provides 

a developer with tax credits in exchange for 

the developer keeping a certain percentage 

of rental units affordable to specified income 

brackets. 

DOWN-PAYMENT ASSISTANCE 

The City of Eustis could establish a downpayment 

assistance program for low- or 

moderate-income homebuyers. Often, the 

grant is repaid when the grantee sells the home, 

so the funds can re-circulate and help another 

family. 

OTHER FEDERAL AND STATE PROGRAMS 

Numerous state and federal programs provide 

financing for affordable housing, including the 

federal HOME program and the state SHIP 

dollars. 

INCLUSIONARY ZONING 

The City could amend the Land Development 

Code to require that private developers 

incorporate a certain percentage of affordable 

units into their projects. While Inclusionary 

Zoning programs have a number of benefits, 

they can be difficult to implement in places 

without a strong real estate market. 

LINKAGE FEES 

Linkage fees can be assessed on commercial 

development, typically on a square foot 

basis, that can be used for affordable housing 

programs. Linkage fees work like impact fees: 

the City would have to prove a “rational nexus” 

between the fee and the need for affordable 

housing that is created by commercial 

development. 

REVISIONS TO BUILDING CODES 

Many building codes contain outdated or 

unnecessary requirements that add to the cost 

of new or rehabilitated housing. New materials 

and construction techniques are often safer 

and cheaper, but might not be permitted under 

existing codes. 

COMMUNITY LAND TRUSTS 

A relatively new idea in affordable housing, 

community land trusts (CLTs) are an efficient 

method of keeping for-sale housing affordable 

over a very long period of time. In a CLT, the 

land is owned by a non-profit organization 

or government entity. A homebuyer then 

purchases a home on that land, and signs a 

long-term, renewable lease for the land. The 

terms of the lease agreement restrict future 

sales prices, keeping the unit affordable in 

perpetuity. Although the resident does not own 

the land, they still have access to all the benefits 

of homeownership, including tax deductions. 


the master plan — phase three 

CATALYST SITES 

FOUNDATION SITE 

The Lake Eustis Community Foundation owns three blocks in the Downtown Core that are primed 

for redevelopment. One block faces the Core retail streets -- Magnolia Avenue and Eustis Street 

-- and the other blocks face Bay Street and Grove Street, both of which are critical corridors 

in the redevelopment of the Downtown Core. The design team considered several options for 

redevelopment potential, including: what is currently allowed by the City of Eustis’ Code; a market 

reality-based scheme; and a high-end scheme showing a maximum development potential. Both the 

market reality-based scheme and the high-end scheme would be allowed by the Land Development 

Regulations being proposed for Eustis. 

HIGH-END REDEVELOPMENT 

Residential: 104 Dwelling Units • 

Retail/Office/Com: 83,100 sqft • 

Parking: 642 spaces (Structured Pkg) • 

Height: 4-5 stories • 


EXISTING SITE 

CONDITIONS 

• 6.3 Acres 

• 1,800 Linear Feet “A” Street 

Frontage 

• General Notes: Current 

Undeveloped 

EXISTING REDEVELOPMENT 

OPTION 

• Residential: 72 Dwelling Units 

• Retail/Office/Com: 21,450 sqft 

• Parking: 194 spaces 

• Height: 1-2 stories 

• 25% Open Space Requirement 

MARKET-BASED 

REDEVELOPMENT 




(Structured Parking) 


PROTOTYPICAL 

BUILDING 

EXAMPLES

SHOPPING CENTER 

On the north side of the Downtown Core, along Grove Street, an underdeveloped strip commercial 

shopping center represents one of the larger redevelopment opportunities in the Downtown. Due 

to the large amount of surface parking available, this site also offers the opportunity for a mix of 

uses, including residential and office space. To capitalize on the redevelopment potential of this 

area, the bounding streets can be turned into “A” streets by extending Bates Avenue from Grove 

Street to Center Street, as described in Phase One, and eventually to Prescott Street. In both the 

market-based scenario and the high-end scenario, a large footprint structure could be attractive 

to larger-format commercial or educational entities, such as an urban grocery store or a satellite 

campus of Lake-Sumter Community College. 

PROTOTYPICAL 

BUILDING 

EXAMPLES 


EXISTING SITE CONDITIONS 

7.2 Acres • 

1,140 Linear Feet “A” Street • 

Frontage • 

General Notes: Multiple • 

Ownerships • 


OPTION 



Parking: 175 spaces • 


25% Open Space Requirement • 

MARKET-BASED 

REDEVELOPMENT 



Parking: 188 spaces • 





• Retail/Office/Com: 111, 900 sqft 

• Parking: 660 spaces (Structured Parking) 





SHARP’S PARK 

Adjacent to Ferran Park on the south side of the Downtown Core is the Sharp’s Park Mobile Home 

Community. This use is not consistent with the community vision of Downtown and offers a prime 

opportunity for redevelopment. The site is under one ownership and spans across Lakeshore Drive 

(County Road 452). As identified in Phase One, Lakeshore Drive is proposed to connect to Orange 

Avenue, which would offer two unique opportunities. First, the land between Lakeshore Drive and 

Lake Eustis could be utilized as an extension of Ferran Park. This would provide an uninterrupted public 

lake frontage for approximately 3,600 feet. Secondly, the redevelopment could be a higher density 

residential, mixed-use product. This redevelopment could be taller and denser than development 

closer to the Downtown Core because it does not disrupt view corridors and can easily transition to 

the neighborhoods to the south. 




Hotel: 60 Rooms • 

Hotel Conference Space: 11,400 sqft • 

Parking: 840 spaces (Structured Pkg) • 



EXISTING SITE CONDITIONS 

• 10.9 Acres 

• 1,200 Linear Feet “A” Street 

Frontage 

• General Notes: Current 

Undeveloped 


OPTION 





• 25% Open Space Requirement 

MARKET-BASED 

REDEVELOPMENT 


• Hotel: 54 Rooms 



PROTOTYPICAL 

BUILDING 

EXAMPLES

TWO-WAY CONVERSION OF BAY & GROVE 

The biggest hindrance to Downtown walkability is the one-way pair of Bay Street and Grove Street 

(State Road 19). This state road was converted from a two-way street to a one-way street system in 

the mid-1970’s because of peak traffic related to the former Waterman Medical Complex located in 

the Downtown Core. While the Medical Complex has since moved out of downtown, current traffic 

projections suggest the one-way pairs are still needed. Unfortunately, this does not consider the 

utilization of Eustis Street, which is currently underutilized because of the one-way portion through 

the Downtown Core. 

In Phase One, Eustis Street would be opened to two-way 

traffic and therefore become a viable alternative in dispersing 

traffic. In converting Bay Street, Eustis Street, and Grove 

Street to two-way traffic, the design team assumed that Bay 

Street would see a decrease from 50% dispersion to 40%; 

Eustis Street would see an increase from 0% to 10%; and Grove 

Street would see an increase from 50% to 60% dispersion. 

Today, travel time through Downtown Eustis takes about 

2.4 minutes. With this dispersion assumption and the twowaying 

of Bay Street and Grove Street, the travel time through 

Downtown would only increase by one minute to 3.5 minutes. 

The one minute difference is insignificant when compared to 

the increases in economic development of the blocks facing 

Bay and Grove, as well as the overall enhanced connectivity 

and walkability in the Downtown Core. 

Two alternatives were studied related to this dispersal. On 

the north end, the traffic could be dispersed through a timed 

signalization that would allow the outside lanes to continue 

through, while timing the interior lanes to allow traffic to 

choose between trips on Bay Street or Grove Street. 


TWO-WAY CONVERSION OF BAY & GROVE 

100% 

40% 

BAY ST 

100% 

10% 

EUSTIS ST 

60% 

GROVE ST 

On the south end, a roundabout is suggested at the intersection 

VEHICULAR DISPERSION 

of Grove Street, Eustis Street, and Ocklawaha Avenue. This 

would disperse traffic travelling northbound while southbound traffic would continue from Bay 

Street to SR 19. The projected traffic volumes suggest that travel time on Grove Street in the 

northbound direction would only increase by thirty seconds by 2025. The City blocks around 

these dispersal points will be reinvigorated by the two-way streets and provide redevelopment and 

numerous gateway opportunities for the City. 

NORTH DISPERSAL 

INTERSECTION 

SOUTH DISPERSAL 

ROUNDABOUT 


conclusions - action items 

CONCLUSION 

The City of Eustis is in a unique time, place, and 

position. Although the real estate market is 

currently soft, particularly with regard to residential 

development, the market will eventually rebound 

and the City should be prepared with revised plans 

and regulations to ensure the community vision will 

be achieved through redevelopment. Additionally, 

with rising gas prices, decreased vehicle miles 

traveled (VMT), and opportunities for mass transit, 

some of the traffic projections on Eustis streets 

could be overestimated, and overall travel time 

may not increase as much as anticipated. This 

means that opportunities to improve the quality 

of life and walkability will be available, which will 

improve economic development as well as access 

and mobility in and around the Downtown Core. 

The Eustis Master Plan establishes a specific vision 

for the future of Downtown Eustis. However, 

Master Plans have a limited shelf life, particularly 

relative to recommended planning and policy 

actions. Without continued discourse and nearterm 

action, the energy and citizen consensus 

identified in the planning process will be lost and 

forgotten. By acting now, the City will be better 

equipped to respond to the marketplace. 

Commitment is vital to the success of Downtown 

Eustis. The opportunity to succeed is there, but 

only if there are coordinated efforts between all 

parties and the continued dialogue with the public. 

Downtown Eustis has a tremendous potential 

as a regional center for urban living and a rich 

community built on the City’s unique arts, culture, 

and environmental resources. The following 

are a series of action items and implementation 

strategies based on the Downtown Eustis Master 

Plan to guide the City towards achieving this 

community-driven process. 

NEIGHBORHOOD ACTIVITIES 

• Property Reinvestment 

• Single Family Homes 

• Infill Residential 

• Affordable/Attainable Housing 

DOWNTOWN ACTIVITIES 

• Surface Parked 

• Townhomes (12-24 du/ac) 

• City Homes (24-32 du/ac) 

• Mixed-Use Condo (Flats with Ground 

Floor Commercial) 

Future Development (2010-2020) 

Getting Ready (2008-2012, and beyond) 

ENHANCE THE DOWNTOWN ADDRESS 

• Lake Eustis Waterfront 

• Streetscapes 

• Wayfinding and Signage 

• Infrastructure Needs / Master Stormwater 

• Architectural Design Guidelines 

FOCUS ON THE NEIGHBORHOODS 

• Street Tree Planting 

• Lighting 

• Walkability Enhancements 

• Retrofit Stormwater Ponds as Parks 

• Property Enhancement Grants 

ESTABLISH THE PROPERTY FRAMEWORK 

• Design Standards 

• Flexible / Moderately Expanded Development 

Opportunities 

• Purchasing of Critical Properties 

• Assembly of Land 

ESTABLISH THE SOCIAL PATTERN - COMING 

TO DOWNTOWN 

• Coordinate Downtown Events 

• Expand Downtown Events 

• Capitalize on the Assets - Arts & Culture on 

the Waterfront 

MARKET DOWNTOWN TO THE DEVELOPMENT 

COMMUNITY 

• Work with Local Partners - Lake County, 

Golden Triangle 

• Create a Developer’s Toolkit 

• Be Connected to Things Bigger Than 

Yourself - Commuter Rail, etc. 

DEFEND YOUR POSITION 

• Flexible Advocacy of the Vision 

• Structured Parking 

• Mid-Rise Condominiums 

• 4-5 Stories 

• 50-70 du/ac 

• Ground Floor Office/Commercial 

• Potentially 3-4 Developments 

• High-Rise Condominiums/Apartments 

• 4-8 Stories 

• 60-70 du/ac 

• Ground Floor Office/Commercial 

• Potentially 1-2 Developments

CITY OF EUSTIS | DOWNTOWN PLAN

Downtown Master Plan - City of Eustis

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