How do I know if special projects in HOA budget are legal?

Our Florida homeowners association of 720 recently completed its 2011 annual operating budget and included several "special projects" designed to enhance and improve the property. None of these projects includes repairs or replacements, but will improve the aesthetics of certain common areas, and the cost is not necessarily expensive enough to special assess. One homeowner says this procedure of addling these projects to the operating budget is illegal as any new projects must be billed to the owners via a special assessment. Where can I find this answer? Thank you, RDH