By Jim Carchidi
June 2, 2026
Orlando is hoping to jump-start the redevelopment of vacant and underused buildings in the city's core by temporarily modifying the project review standards of the Downtown Historic District. An ordinance proposed by the Economic Development Department would enact a 36-month moratorium on a required Certificate of Appropriateness (COA) in an effort to encourage private sector investments.
Downtown Historic District
A map of downtown Orlando shows the number of public and private development investments between Colonial Drive and South Street in the last 15 years. The Downtown Historic District (in green) has had no private investments in nearly 20 years. Image courtesy of City of Orlando
The Kress building is among the historic commercial structures within the Downtown Historic District.
Downtown is one of Orlando’s six historic preservation districts and the only one affected by the proposed ordinance. The eight-block zone, located between Washington and Church streets and bordered by Magnolia Avenue and the railroad tracks, includes buildings constructed between the 1880s and early 1940s. Despite being the city's only historic district to incorporate commercial structures, the renovation standards are equal to those for historic homes.
A long wait
The 55 West apartment building and its first-floor restaurant and retail storefronts is among the last major developments completed in the district. Photo by Jim Carchidi
Development proposals for the district are reviewed by the Historic Preservation Board (HPB) with a COA awarded for compliance with federal standards for the repair and reuse of historic buildings. However, standards go beyond preservation and require original designs to be restored without the opportunity for expansion or for engineering and design modifications necessary for the commercial viability of large-scale projects.
The requirements have prevented major investments from moving forward since Church Street's 55 West apartment hi-rise was completed in 2009. Economic Development Director Lillian Scott-Payne told The Orlando Real the moratorium is meant to revive interest from private developers.
“Orlando is very unique in that our (downtown) historic district sits pretty much right on top of our central business district,” she said. “We are trying to figure out a way to balance the historic preservation objectives with, essentially, the need for economic development within our downtown core.”
Inconsistent redevelopment
The Canopy, planned for S. Hughey Ave. between W. Church and W. Washington streets, is part of a city investment in downtown community spaces and streets. Image courtesy of City of Orlando
The DTO Action Plan will reshape the central business district with $200 million in projects that include a redevelopment of Lake Eola Park, the addition of The Canopy community space under I4, and improved streetscapes and pedestrian access along Church Street. Downtown Development Board and Community Redevelopment Agency Executive Director David Barilla says a consistent downtown revitalization requires similar investments in the historic district. Despite receiving positive feedback from potential developers who tour the area, he notes an ongoing inability to make plans work within the context of historically accurate preservation.
“If I just go up one block or two blocks, I have a completely different rule book that offers me a lot more flexibility,” Barilla said.
“People aren’t even willing to try because they’ve seen projects get turned away,” Scott-Payne added.
Changing the game
The Church Street train station is among the downtown properties left behind as a compromise between historic building standards and economically viable redevelopment continues to elude stakeholders.
Despite the road blocks, the role of the HPB is not in question. “We just need to figure out the balance and have some time to really study whether this may be the solution,” Scott-Payne said.
Under the moratorium, projects would meet the urban design principals of Orlando’s downtown design guidelines and go before the Appearance Review Board instead of the HPB. Tax incentives would also be offered for projects incorporating original architectural components and maintaining historic designs.
Downtown Development Board and Community Redevelopment Agency Executive Director David Barilla, Planning Division Manager Jason Burton and Economic Development Director Lillian Scott-Payne discuss the proposed ordinance and the need for historic and economic balance in the downtown district.
“We want to be able to come alongside those property owners or developers who want to invest in their property and keep that historic context and preserve the components of the building,” Barilla said.
If the ordinance is approved, Orlando City Council would have the ability to enact changes before the end of the 36-month term, including terminating the moratorium. In that event, a project receiving permitting under the moratorium would have two years to follow through. Stakeholders see the effort as a study period to test one possible solution to the downtown development dilemma.
“It may not be the solution, we don’t know," Scott-Payne adds, "but at least we'll have a good amount of time to study and see what happens.”
Historic examples
As an example of a desirable downtown project, Planning Division Manager Jason Burton cites the 2017 addition of Winter Garden’s Whole Enchilada. The restaurant occupies new construction behind the original facade and replicated brickwork of Plant Street's former Encore Furniture building.
“That’s the balance we're looking for,” Burton said. “Trying to incentivize the reuse of the historic fabric in a more flexible way that we can’t really do today. It could result in other major potential projects happening because we have a lot more development rights than downtown Winter Garden.”
Meanwhile, Barilla cites the former State Bank of Orlando building at 1 N. Orange Ave. as an example of a city-led solution that can't be repeated. The 10-story, 100-year-old office building sat vacant for 15 years until it was purchased by the Community Redevelopment Agency for $9.6 million. Bids are being sought for commercial tenant and developer proposals and Barilla expects and announcement in the near future, but says the economics of the plan are not sustainable for the remaining needs of the district.
"We can’t do that with every building," Barilla said. "We need the private sector to be able to step in and do it as well."
Next steps
The first reading of the proposed ordinance will be held at the June 8 City Council meeting with discussion and a first vote to follow. If it passes, a final reading and vote would be expected for the June 22 meeting. Both hearings are open to the public and residents can state their opinions during public comments.
For more information on Orlando city meetings, log onto Orlando.gov.
Sponsor: The Orlando Real is sponsored by the Pozek Group — the #1 real estate team in Orlando and the Official Real Estate Team of the Orlando Magic.
About the Author
Jim Carchidi is an Orlando journalist and photographer with previous work at the Orlando Sentinel and Orlando Business Journal. He covers development, arts, culture, and local stories for The Orlando Real.
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