Agenda 01/24/2017 Item #11C01/24/2017
EXECUTIVE SUMMARY
Report on the current status of the Conservation Collier program, options related to gauging public
sentiment regarding the reauthorization of the ad valorem levy for continued acquisitions under the
program, and request that the Board provides direction for the measurement of public sentiment.
OBJECTIVE: To respond to a Board of County Commissioners (Board) request to provide options and
recommendations to gauge support for a reauthorized Conservation Collier program.
CONSIDERATIONS: The Conservation Collier program is a county-wide ad valorem tax funded
initiative approved on November 5, 2002 by voters. A separate county-wide ad valorem tax of .25 mills
per $1,000 of taxable value was levied between 2003 and 2013.
The goal of the Conservation Collier program as originally envisioned was long-term acquisition and
management of green space and the preservation of such lands in perpetuity. The acquisitions phase was
halted in 2011 in order to direct sufficient funds into the maintenance trust fund.
During the program’s acquisition phase, a total of 4,060 acres meeting program criteria were acquired in
nineteen (19) different locations at a total cost of approximately $103.9 million. A total of $47.3 million
was bonded for use in property acquisition, via bonds issued in 2004 and 2008. Both bonds have since
been retired. Since the time that the levy ceased, an additional 16.45 acres were added to the inventory
from donations and goods deals for a current total of 4,084.36 acres. Two approved multi-parcel projects,
Winchester Head (aka North Golden Gate Estates (NGGE) Unit 65) and Red Maple Swamp (aka NGGE
Unit 53) are currently actively accepting donations.
The Conservation Collier program is currently in a management phase; worki ng to open preserves to the
public, while hosting visitors, students, and volunteers at its open preserves. Twelve (12) of the nineteen
(19) preserves are open with trails and various levels of amenities. Some preserves, such as Shell Island
and Camp Keais, were purchased as resource protection and may not be developed for public access. The
remaining preserves have access issues that need to be resolved and they will be opened at some point in
the future. A map of the locations of Conservation Collier preserves is attached. Also attached is an
overview of current and planned amenities associated with the properties, consistent with the land
management plans of the preserves.
In 2014, the Board approved a Ten-Year Financial Plan focused on streamlining expenditures,
establishing a combined program minimum fund balance of $32 million, and creating a plan to ensure
spending practices remain consistent with long-range financial targets. The current combined balance of
all Conservation Collier funds is approximately $34.9 million.
Should the Board desire, public sentiment regarding the reauthorization of the ad valorem levy could be
gauged through a variety of methods that include, but are not limited to the following:
1. Conduct a straw poll ballot of registered voters administered by the Supervisor of Elections. The poll
could be held at North Collier Regional Park in March or April 2017 and results would then be reported
back to the Board. Estimated costs associated with this option are approximately $5,000 to $7,000.
2. Hire a planning firm to conduct a public poll of Collier County residents. The estimated costs
associated with this option are approximately $15,000 to $20,000. Staff anticipates that this option will
allow results to be provided to the Board by September 2017.
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3. Establish a referendum to be held. If the referendum were to be held in conjunction with a regular
election there would be no additional costs. The next scheduled election is August 2018. If there is a
desire to have a standalone ballot, estimates from the Supervisor's of Elections Office suggest a cost of
$500,000.
Example referendum language is included below:
“Do you approve of Collier County continuing to use general revenue funds to acquire,
restore, improve, and manage land for conservation, surface water management, water
quality, water recharge and supply, flood control, wildlife habitat, passive public
recreation, and open space purposes pursuant to the Conservation Collier Ordinance?”
During the duration of the ten year levy (.25 mills per $1000 taxable value) approximately $159 million
was raised. The taxes generated were originally split 85% for land acquisition and 15% for land
maintenance. As the program evolved it became clear that the land maintenance allocation was
insufficient and additional program resources were earmarked for the maintenance trust fund. Based on
staff’s experience, it is recommended that a minimum of 25% of any future program proceeds should be
earmarked for long-term maintenance.
The table below illustrates the estimated county-wide ad valorem tax dollars generated at various millage
rates:
Graph 1
If the Board decided to initiate some level of ad valorem funding without the benefit of a referendum,
land acquisitions would be restricted to a pay-as-you-go approach considering that the use of ad valorem
dollars as a repayment source for the issuance of debt would require a referendum. In addition, the
Conservation Collier Ordinance (2007-65, Section 8.6.b.) requires that the goals and primary criteria of
the program may not be modified except by a County-wide referendum vote. Also, should it be desired
for Conservation Collier to acquire lands associated with the Transfer of Development Rights (TDRs)
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program, a referendum may be required.
It should be noted that the Land Development Code off-site vegetation retention provision (LDC 3.05.07,
H.1.f. iii. b.) provides a process for donations to Conservation Collier. These donations require all
existing invasive exotic plants be removed, and a cash management endowment be provided based on
25% of the cost of acquired similar parcels. All approvals to accept or acquire parcels within the multi -
parcel projects have been conceptually provided if established criteria are met, with final acceptanc e of
parcels required by the Board.
Below is a list of pending properties that have been deemed suitable by the Board of County
Commissioners, Conservation Collier Land Acquisition Committee, and from discussions regarding the
Rural Fringe Mixed Use Districts allowing for TDR’s being acquired with the reauthorization of the ad-
valorem levy:
Property Current Acreage
Acquired
Available for
acquisition
Status of
Acquisition
Comments
Winchester Head 80 acres 78.67 acres 50% acquired Currently,
Conservation Collier
has Board approval
for acquisition in
these areas
Red Maple Swamp 200 acres 105 acres 66% acquired Currently,
Conservation Collier
has Board approval
for acquisition in
these areas
Horsepen Strand 8 acres 201 acres N/A This is not an
approved multi-
parcel project and if
it were to be
developed as a
project, actual
boundaries and size
would need to be
determined
North Belle Meade
West
N/A N/A N/A There are a potential
3,074 acres that
could be placed into
conservation under a
TDR program in this
area
North Belle Meade
Natural Resources
Protection Area
(NRPA)
N/A N/A N/A There are a potential
6,451 acres that
could be placed into
conservation under a
TDR program in this
area
Barron Collier
Investments lands
N/A N/A The last approved
Conservation Collier
2 large parcels
totaling 1,034 acres.
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Active Acquisition
List, dated Jan 25,
2011, had two
properties on the A-
list that were not
acquired due to lack
of funding
These lands are
south of and
adjoining Pepper
Ranch Preserve.
FISCAL IMPACT: In the Considerations section above, alternatives and estimated costs for gauging
public opinion are provided. Graph 1 illustrates the estimated county-wide ad valorem tax dollars
generated at various millage rates.
Ideally, interest income generated from the Conservation Collier Maintenance Trust Fund would cover
operating and maintenance expenses of the program thus preserving trust fund principle under the notion
of perpetuity. In practice, there is a shortfall between interest earning and annual operating and
maintenance expenses of approximately $95,000 annually leading to a 10-year principal reduction of
approximately $950,000.
GROWTH MANAGEMENT IMPACT: A reauthorized Conservation Collier program would have the
ability to function to support other County growth management initiatives such as the 2016 Restudies and
the Comprehensive Water Improvement program if approved.
LEGAL CONSIDERATIONS: This item has been reviewed by the County Attorney, raises no legal
issue, and requires majority support for any action. -JAK
RECOMMENDATION: That the Board of County Commissioners:
1. Provides staff direction on pursuing public sentiment related to reestablishing the Conservation
Collier land acquisition program;
2. Directs funding be authorized to pursue one or more of the options identified above and approve
necessary budget amendments.
Prepared by: Alexandra Sulecki, Principal Environmental Specialist, Parks and Recreation Department
ATTACHMENT(S)
1. Map of Preserve Areas (DOCX)
2. Preserve Amenities (DOCX)
3. Financial Plan 5-10 Yr Summary (PDF)
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COLLIER COUNTY
Board of County Commissioners
Item Number: 11.C
Item Summary: Report on the current status of the Conservation Collier program, options related
to gauging public sentiment regarding the reauthorization of the ad valorem levy for continued
acquisitions under the program, and request that the Board provides direction for the measurement of
public sentiment. (Barry Williams, Director, Parks and Recreation)
Meeting Date: 01/24/2017
Prepared by:
Title: Operations Analyst – Public Services Department
Name: Hailey Margarita Alonso
01/11/2017 2:33 PM
Submitted by:
Title: Division Director - Parks & Recreation – Parks & Recreation
Name: Barry Williams
01/11/2017 2:33 PM
Approved By:
Review:
Parks & Recreation Alexandra Sulecki Additional Reviewer Completed 01/11/2017 2:40 PM
Parks & Recreation Ilonka Washburn Additional Reviewer Completed 01/12/2017 7:59 AM
Public Services Department Joshua Hammond Additional Reviewer Completed 01/12/2017 8:03 AM
Public Services Department Amanda O. Townsend Additional Reviewer Completed 01/12/2017 11:50 AM
Parks & Recreation Jeanine McPherson Additional Reviewer Completed 01/12/2017 7:51 PM
Parks & Recreation Barry Williams Additional Reviewer Completed 01/13/2017 8:46 AM
Public Services Department Hailey Margarita Alonso Level 1 Division Reviewer Completed 01/13/2017 9:36 AM
Public Services Department Steve Carnell Level 2 Division Administrator Review Completed 01/13/2017 4:00 PM
County Attorney's Office Jeffrey A. Klatzkow Level 3 County Attorney's Office Review Completed 01/17/2017 7:47 AM
Office of Management and Budget Valerie Fleming Level 3 OMB Gatekeeper Review Completed 01/17/2017 8:20 AM
Budget and Management Office Ed Finn Additional Reviewer Completed 01/18/2017 1:20 PM
County Manager's Office Leo E. Ochs Level 4 County Manager Review Completed 01/18/2017 1:48 PM
Board of County Commissioners MaryJo Brock Meeting Pending 01/24/2017 9:00 AM
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Exhibit A
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Packet Pg. 400 Attachment: Map of Preserve Areas (2573 : Conservation Collier on proceeding with an option to guage public sentiment)
Present and Planned Amenities
January 24, 2017
Preserve Name Total
#Acreage Description
Estimated
Annual cost
for
maintenance
Estimated
Cost for
Planned
Amenities
Alligator Flag 18.46 There are non-ADA trails, bench, sign
there. No further amenities are planned. $4,200 N/A
Camp Keais
Strand 32.5 None. Public Access Prohibited 0 N/A
Caracara Prairie 367.7
Non-ADA trails, benches, picnic table,
kissing gates are present. No further
amenities are planned.
$30,000 N/A
Cocohatchee
Creek 3.64
ADA and non-ADA trails, picnic table,
benches, garbage and recycle cans, sign are
present, No further amenities are planned.
$2,700 N/A
Freedom Park 12.5 ADA Boardwalk (Parks Division maintains
this). No additional amenities are planned. $2,700 N/A
Gordon River
Greenway 50.51
There are ADA Boardwalk, garbage and
recycle cans, 1 fishing platform, 3 shade
structures, sign at the preserve. Future
proposed amenities include CDC parcel-
Asphalt Trail, fishing platform, 10-space
parking lot, gate & sign. These amenities
were never approved and were only
conceptual.
$25,000 $426,615
Logan Woods 6.78
Picnic table, garbage and recycle cans, sign
are currently present. No further amenities
are planned.
$2,200 N/A
McIlvane Marsh 378.87 No amenities are present and none are
currently planned. 0 $800
Nancy Payton 71
Benches, picnic tables, and unpaved
parking area are present. No additional
amenities are planned.
$8,000 N/A
Otter Mound 2.45
Bench, 3-space parking lot, garbage and
recycle cans, sign are existing amenities.
No additional amenities are planned.
$8,000 N/A
Panther Walk 10.69 A sign and non-ADA trail are present. No
additional amenities are planned. $1,100 N/A
Pepper Ranch 2,512
Currently, amenities include Parking, 2
campgrounds, recycle and garbage cans,
boardwalk lake overview, non- ADATrails,
sign, 2 gates.
Future planned amenities include $25,000
for RV pad/utilities. Additionally funding
for cottage repairs are needed but not
budgeted – amount unknown.
$150,000 $25,000
Railhead Scrub 135.36
Non-ADA trails only. Parking and ADA
trails were initially planned but not
constructed due to delays in development
of the access road.
$22,000 $128,000
Red Maple
Swamp 206.38 No current amenities are there. Future
amenities include signage. $7,500 $800
Rivers Road 76.74 Picnic table, benches, parking area, non-
ADA trails are there now. No future $38,000 N/A
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Packet Pg. 401 Attachment: Preserve Amenities (2573 : Conservation Collier on proceeding with an option to guage public sentiment)
Present and Planned Amenities
January 24, 2017
amenities are planned.
Redroot 9.26 There are benches and a sign there
currently. No future amenities are planned. $1,200 N/A
Shell Island 83.18 None. Public Access Prohibited $5,000 N/A
Wet Woods 26.77
No amenities currently there. A non-ADA
trail and 550-foot boardwalk & permitting
were planned but not built due to general
economic downturn.
$4,000 $440,000
Winchester Head 79.67 No amenities present – none planned $16,200 N/A
Total 4084.46 $327,000 $1,021,215
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Packet Pg. 402 Attachment: Preserve Amenities (2573 : Conservation Collier on proceeding with an option to guage public sentiment)
Description
FY17 Through FY21
(Year 5)
FY17 Through FY26
(Year 10)
Beginning Balance 34,922,091 34,922,091
Add:
Operating Revenue 2,569,774 6,087,574
Less:
Operating/Maint Costs (3,521,075) (6,830,088)
Operating Gain/(Loss) (951,301) (742,514)
Capital Acquisitions/Improvements (204,853) (204,853)
Combined Conservation Collier Fund
Balance 33,765,938 33,974,725
Balance Change (1,156,153) (947,366)
Fund balance floor per policy is $32 million
Conservation Collier Funds
Financial Plan Five & Ten Year Summary
FY17 through FY26
Funds (172, 174, 179, 272, 273, 674)
H:\ENF\Divisions\Public Services\Conservation Collier\Financial Analysis\aCurrent Workpaper\Update 11-16-16\Update 11-30-16.xlsx 1/18/2017
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Packet Pg. 403 Attachment: Financial Plan 5-10 Yr Summary (2573 : Conservation Collier on proceeding with an option to guage public sentiment)