Legit question, what part of this would you say Disney has not done? Do you not think a multi-theme park multi-water park, multi-resort with literally tens of thousands of hotel rooms does not fit the bill? It has to have people that rent apartment's or else it is failing in its charter? How many, what percentage? Why are these things not included? Why was there no stipulation on the amount of residents that had to included? Why did the very same law makers not come back later and strip the district when it became apparent that it was not going to happen?
So Disney was smart enough to know EPCOT wouldn't fly in it's original format but the state was too stupid? They still expected a city to be built or are you saying that both sides knew that tourists is what the whole thing was about? If so then mission accomplished, I would say the WDW complex gets a lot of "temporary visitors" and the state of Florida has benefited from those visitors while not having to pay for the WDW infrastructure.
No need, I can just look at their actions which I believe say everything you need to know If building EPCOT the city was what the state really wanted, they would have removed RCID decades ago. They didn't because they didn't care, or if they did, not enough to do anything about it.
Just going to throw this out there but you don't think it was left vague enough that Disney could go in many different directions? That the state may have been smart enough at the time to pass something that accounted for the "current" plan (though Walt was already dead by the time it was signed) but still allowed for a wide latitude if changes were needed?
When Walt died, the EPCOT he planned died with him. At the time, no one was sure what would happen. Roy delayed retirement to develop the property. And WDW is his, not Walt's. I'm sure Roy being the smart business side of that duo knew that the charter needed to be more flexible and accommodate more than just Walt's vision of an EPCOT.