Agenda 03/14/2017 Item #11C03/14/2017
EXECUTIVE SUMMARY
Recommendation to review and prioritize the public planning initiatives authorized by the Board of
County Commissioners, and authorize funding necessary to adequately facilitate the Board’s
priorities for these various public planning initiatives.
OBJECTIVE: To provide an overview of the public planning initiatives (long range planning studies,
current Board directed moratoriums, current and future Land Development Code (LDC) Amendments)
and determine the staffing levels to effectively facilitate the coordination of LDC amendments,
moratoriums and associated public planning initiatives directed by the Board.
CONSIDERATIONS: At the January 3, 2017, Board workshop, the Board requested staff to determine
an adequate staffing level necessary to facilitate amendments to the LDC related to Comprehensive Plan
updates and other Board-directed initiatives.
The LDC Section is currently funded with three full-time positions, a Manager, a Principal Planner, and a
Senior Planner. Adding an additional Principal Planner, Full Time Equivalent (FTE) would allow staff to
more proficiently address both short-term and long-term LDC amendments that correlate with the
Comprehensive Plan Restudies as well as other Board directives.
LDC staff is currently able to manage the LDC Amendment Cycle process. However, at the current staff
level, the LDC Section will be unable to effectively process short-term LDC amendments and address the
long-term amendment demands related to the Comprehensive Plan Restudies. The Restudies include the
Rural Fringe Mixed-Use District, Golden Gate Area Master Plan, the Rural Lands Stewardship Area, and
the Immokalee Area Master Plan, all of which require Comprehensive Plan amendments, as well as
identified LDC amendments (Exhibit “A”). Exhibit “A” provides for the identification of all pending
LDC amendments, with estimates of the timing of these amendments. With the first of the four areas
(Rural Fringe Mixed Use District) initiating the GMP amendment process late summer/early fall 2017, a
member of the expanded LDC amendment team will be assigned to facilitate the corresponding LDC
amendments that can be in companion with the adoption hearings for the GMP amendments. This
process would begin this fall and continue until the estimated completion of the Restudies in the summer
of 2019. As noted, the requested position within the LDC section would spend at least 50 percent of their
time working with the Community Planning Section’s LDC amendment needs.
In addition to the LDC Amendment Cycle, staff will need to address amendments related to the Board
initiated moratorium for medical marijuana, potential LDC amendments related to the affordable housing
initiative, and the February 14, 2017, Board approved U.S. 41 Corridor Study.
Examples of other identified LDC amendments that need to be addressed include the following:
Address necessary amendments required for Medical Marijuana dispensaries
Update and amend the Telecommunication Tower Section
Develop standards appropriate for redevelopment
Generate lighting standards to reduce glare and light pollution for non-residential land uses
Create design standards for Cluster Housing to avoid vegetation and landscaping impacts
Update the Administrative Code to support Electronic Plan review
Update the LDC section regarding facilities with fuel pumps to include additional site design
requirements for facilities with more than 16 fuel pumps
Evaluate the “native vegetation” term and review for consistency throughout the code
Update the LDC to require lot splits be recorded within 12 months
Evaluate applicability of soil erosion and sediment control plan requirement
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Facilitate changes to LDC airport overlay districts addressing changes in Florida Statutes
Update and amend the utilities ordinance for acceptance process
Update the LDC language regarding waterfront lot setbacks
The LDC section will work diligently to coordinate the Board’s LDC amendment priorities, but recognize
that the number of identified LDC amendments, as well as future LDC amendments related to
moratoriums, planning studies and Growth Management Plan (GMP) amendments cannot be successfully
facilitated through the amendment process at the current staffing level. Exhibit “B” provides a
prioritization of the future amendments and an estimate of the time frames to satisfy the amendment
process, with the addition of the requested Principal Planner position. There are seventeen separate LDC
amendments that are currently pending development and with the additional FTE the current projection
would satisfy the allotment by the end of 2020. This schedule provides that no additional LDC
amendments will be requested by the Board or Collier County Planning Commission (CCPC) within that
time frame, a highly unlikely occurrence. Based upon that recognition, the justification for the additional
FTE is further established. Any additional support required to satisfy Board -directed priorities would
potentially be handled through outsourcing to a private planning firm, dependent upon funding
availability.
In addition to the future LDC amendment cycles, the Board at the February 14, 2017, public hearing,
directed staff to facilitate the US 41 Corridor Study. The study is scheduled to be outsourced to a local
planning firm to provide for direct interaction with the East Naples community to better identify means to
incentivize desired commercial development for the corridor. The effort is estimated at $35,000 -
$45,000 for completion and once complete, there may be a need for LDC amendments (these will be
added to the list identified within Exhibit “B”) to facilitate the direction provided from the corridor
study. The timing of this effort is expected to last 6 months and would be initiated late spring/early
summer 2017.
Additionally, at the January 3, 2017 BCC Workshop to discuss the status of the four Growth Management
Plan (GMP) restudies, the Board directed staff to determine the cost associated with updating the Collier
Inter-Active Growth Model (CIGM) (Exhibit “C). To summarize, the primary function of the CIGM is
to: identify land use issues before they become difficult problems; provide for populations and land use
modeling to better facilitate the data needed for long range planning efforts, such as the MPO’s Long
Range Transportation Plan (LRTP), the Collier County Parks Master Plan and various other infrastructure
and service providers’ master planning efforts; and better coordinate the infrastructure timing needs
related to the projected populations. Exhibit “C” not only provides a history of the CIGM utilization in
the past, but also addresses the changes to the model’s development and cost options for updating the
CIGM to the current version.
The updating of the CIGM is expected to last 12 months and would be initiated no earlier than the start of
FY2017-18. Should the Board choose to pursue option 2, updating the CIGM and expanding the model
to encompass the entire County, a budget allocation of at least $220,000 would be required for work to
occur in fiscal year 2017/18. Please note that the contract for updating the CIGM would be provided to
the Board for consideration at a future meeting as a sole source contract, similar to the original model’s
development. Additionally, the updating of the CIGM will require one Senior Planner FTE to assist with
and oversee the update, and comprehend and disseminate the models output capacity for future internal
and external utilization.
FISCAL IMPACT: These positions will be funded by Fund 131. Costs associated with the Principal
Planner position for the remainder of FY17 are estimated to be $44,000, fully weighted, assuming a start
date of May 1, 2017, and $105,000 for FY18. This action will result in no net change to the General
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Fund, and no additional increase in fees is required to fund this position as there are sufficient funds
available within the current FY17 budget. The cost associated with the Senior Planner position and the
Principal Planner position for FY17/18 will be requested as part of the upcoming budgetary process. The
cost associated with the US 41 Corridor Study can be satisfied within the Zoning Division’s current
budget, and the estimated $220,000 for the updating of the CIGM will also be requested as part of the
Fiscal Year 2017/18 budgetary process.
LEGAL CONSIDERATIONS: This item has been reviewed by the County Attorney, is approved as to
form and legality, and requires majority vote for approval. -JAK
RECOMMENDATION: To approve the addition of one Principal Planner, Full Time Equivalent(FTE)
(current fiscal year) and one Senior Planner (fiscal year 17/18) within the Zoning Division of the Growth
Management Department and provide direction on the options for updating the Collier Inter-Active
Growth Model.
Prepared by: Mike Bosi, Director, Zoning Division
ATTACHMENT(S)
1. Exhibit-A (PDF)
2. Exhibit-B (PDF)
3. Exhibit-C--cigm (PDF)
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COLLIER COUNTY
Board of County Commissioners
Item Number: 11.C
Doc ID: 2812
Item Summary: Recommendation to review and prioritize the public planning initiatives
authorized by the Board of County Commissioners, and authorize funding necessary to adequately
facilitate the Board’s priorities for these various public planning initiatives. (Mike Bosi, Zoning Division
Director)
Meeting Date: 03/14/2017
Prepared by:
Title: Division Director - Planning and Zoning – Zoning
Name: Michael Bosi
02/28/2017 3:52 PM
Submitted by:
Title: Division Director - Planning and Zoning – Zoning
Name: Michael Bosi
02/28/2017 3:52 PM
Approved By:
Review:
Growth Management Department Judy Puig Level 1 Division Reviewer Completed 02/28/2017 4:17 PM
Growth Management Department James French Additional Reviewer Completed 02/28/2017 6:49 PM
Growth Management Department Jeanne Marcella Level 2 Division Administrator Completed 03/01/2017 7:42 AM
County Attorney's Office Jeffrey A. Klatzkow Level 3 County Attorney's Office Review Completed 03/01/2017 11:31 AM
Office of Management and Budget Valerie Fleming Level 3 OMB Gatekeeper Review Completed 03/01/2017 12:17 PM
Budget and Management Office Mark Isackson Additional Reviewer Completed 03/06/2017 11:54 AM
County Manager's Office Leo E. Ochs Level 4 County Manager Review Completed 03/08/2017 1:02 PM
Board of County Commissioners MaryJo Brock Meeting Pending 03/14/2017 9:00 AM
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LDC Amedments Associated with GMP Master Plan Restudies Timeframe Estimates
Quarters Ending Mar-17Jun-17Sep-17Dec-17Mar-18Jun-18Sep-18Dec-18Mar-19Jun-19Rural Fringe Mixed Use District
Golden Gate Area Master Plan
Immokalee Area Master Plan
Rural Land Stewardship Area
11.C.a
Packet Pg. 275 Attachment: Exhibit-A (2812 : Planning Projects and Resource needs)
LDC Amedments Associated with GMP Master Plan Restudies Timeframe Estimates
Quarters Ending Mar-17Jun-17Sep-17Dec-17Mar-18Jun-18Sep-18Dec-18Mar-19Jun-19Rural Fringe Mixed Use District
Golden Gate Area Master Plan
Immokalee Area Master Plan
Rural Land Stewardship Area
11.C.a
Packet Pg. 276 Attachment: Exhibit-A (2812 : Planning Projects and Resource needs)
Exhibit “B”
LDC Amendments Timeline
Assumes 4 Full Time Employees (1 LDC Manager, 3 Principal Planners)
FTE 1
FTE 2
FTE 3
FTE 4
All FTEs
M A M J J A S O N D J F M A M J J A S O N D J F M A M J J A S O N D J F M A M J J A S O N D
Medical Marijuana
GMP Amendments
Conservation Collier (off site donations)
Airport Zoning
Utilities Conveyance
Facilities with Fuel Pumps
Communication Towers
ROW Handbook Update
Lighting
Administrative Code
GMP Restudy Amendments
Amplified Sound
Native Vegetation
Soil Erosion
Staff Requested Amendments
12 months
12 months
12 months
12 months
Ongoing
18 months
Ongoing
ULI Recommended Housing Amendments
12 months
12 months
12 months
12 months
12 months
18 months
18 months
18 months
18 months
Redevelopment - Urban area 24 months
24 months
12 months
2017 2018 2019 2020LDC Amendments
11.C.b
Packet Pg. 277 Attachment: Exhibit-B (2812 : Planning Projects and Resource needs)
Exhibit “C”
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Collier Inter-Active Growth Model (CIGM)
Introduction and Overview
As part of the 2006 Horizon Build Out Study, the Board contracted with Van Buskirk and
Associates to develop the Collier County Interactive Growth Model. Based upon the executive
summary authorizing the contract in 2006, the CIGM was designed for, “developing and
depicting a model for current development that can be updated annually; developing a build-out
model to determine the population, and its characteristics and its distribution by Transportation
Analysis Zones (TAZ); developing a population forecasting model for the study area east of CR
951; developing a commercial model with the assistance of County staff to determine the demand
for retail space and office space (neighborhood, community, regional) required as a function of
time and population; developing a model with the assistance of County staff to determine the
apportionment of land for industrial and wholesale activities to meet future needs; developing a
school facility model with the assistance of County staff to determine future school plant
facilities to meet the needs of the population over time; developing an open space model with the
assistance of County staff to determine the needs based on current level of service or state
standards to develop open spaces (neighborhood, community, regional parks), the timing of
facilities and their location; developing a sub-model with the assistance of County staff to
determine the need, service area, timing and spatial distribution of fire stations; developing the
CIGM with the assistance of County staff that forecasts the spatial distribution over time and the
apportionment of land uses necessary to meet the needs of the population.”
Based upon that original contract the CIGM was developed in parallel with the two year
community planning effort of the “East of 951 Infrastructure and Services Horizon Study Public
Participation Master Plan Committee”. The Committee met from October 2006 to its final
presentation to the Board in September 2008.
The CIGM divided the study area into 250 zones, called Traffic Analysis Zones (TAZ). For each
zone, the model inventoried existing development and estimated build out according to the rules
and regulations of the GMP FLUM which included many sub districts of the comprehensive
plan.
The CIGM successfully forecasted development by individual zones and by sub districts (i.e.
RLSA, RFMUD, etc.), for each zone in 5 year increments to build out. Collier County received
national recognition when Planning Magazine published a feature article on the successful
results of the CIGM Ver.1 to meet the many challenges.
Examples of some Typical Applications and Benefits of IGM Ver.1 East of CR 951
The CIGM forecasted when and where development would take place in 5 year
increments to build out, it also forecasted thru its several sub models when and where
11.C.c
Packet Pg. 278 Attachment: Exhibit-C--cigm (2812 : Planning Projects and Resource needs)
Exhibit “C”
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public facilities ( i.e. parks, sheriff sub stations, schools, libraries ,etc.), including
commercial centers where needed to meet the needs of the future population.
The CIGM generated a universe of forecasted data and documentation to assist planning
staff. With CIGM data, the staff did not need to spend the time independently
researching and collecting data for each project, saving time and money. The CIGM data
freed up staff time to work on more productive planning activities and produce more
work products. The model data also diminished the future use of consultants for planning
studies or projects.
Some specific examples of saved resources from the original CIGM 2007 model:
Staff evaluations of proposed zoning and comp plan amendments requiring
verification analysis and processing of the applications including supplemental
studies.
Collier’s Metropolitan Planning Organization (MPO) used the CIGM forecasted data
for its traffic models to forecast transportation improvements needed to serve future
development. Traditionally the cost for MPO to collect and forecast data can be
considerable for traffic models. CIGM provided forecasted data for their models east
of CR 951 resulting in additional savings. The MPO update and run their county wide
models to determine future road improvements needed for federal and state aid.
The North Naples Fire District used the CIGM forecasted data to evaluate the
analysis of consolidation of the two districts.
CIGM provided data for the Master Mobility Plan study.
CIGM identified future economic opportunities not anticipated by the GMP in the
eastern portion of the county. The GMP did not have provisions for regional facilities
(regional shopping center, office services, hospitals, etc.) to meet the needs of future
populations, which were identified by CIGM. This will diversify the tax base, balance
the labor force and provide for a more diverse local economy.
CIGM set the framework for the orderly development of infrastructure to optimize
public and private capital investments. The underutilization of infrastructure results in
a negative return and overutilization leads to early replacement before realizing its
full economic life, resulting in a negative return.
The objective of this report is to present two separate proposals and their cost/benefits.
They are:
1. The first Proposal 1 (option 1) provides a major update of the original CIGM
implemented in 2007; one of the major updates is to expand the CIGM study area to
include the lands west of CR 951 for a county wide CIGM and an estimate of cost
11.C.c
Packet Pg. 279 Attachment: Exhibit-C--cigm (2812 : Planning Projects and Resource needs)
Exhibit “C”
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2. The second Proposal 2 ( option 2) is to implement the new highly advance new IGM
Ver. 3 software, that has more applications, data and is faster and also include the
whole county and an estimate of cost.
The benefits of increasing the CIGM study area to include the whole county results in an
increase of 70% more zones from the original CIGM.
Why increase the CIGM study area to include the whole county?
A complete accounting of the baseline conditions result in a more accurate forecast of
development impacts, effects and trends between the areas east and west of CR 951.
The complete dataset will make staff able to analyze development impacts on a
county wide basis and provide the needed data for the traffic models.
An important future trend to follow is that residents east of CR 951 presently drive
west of CR 951 for their professional and personal service’s needs. As population
thresholds increase east of CR 951, the critical mass population will support these
service an will be located in the easterly portion of the county and as a results
commercial properties west of CR 951 could be available for redevelopment to
residential, restoring economic efficiencies.
Developing a countywide CIGM will provide policy makers the option of replacing
the state’s current population projections supplied by the Bureau of Business and
Economic Research (BBER), with population projections provided by the CIGM
which are based on more localized data. Additionally, The CIGM was not utilized by
two current GMP amendments, due to their locations being west of CR 951. The
expansion of the model to cover the entire County will rectify this limitation for
future amendment cycles.
The CIGM will be updated with the results of the 2010 Census and allow for each
TAZ to utilize updated persons per household data. The updated data that will bring
further refinement to the spatial population projections. Additionally, information
related to vacancy rates and seasonal population trends will be incorporated into the
model post the 2010 Census.
Proposal 1 (option 1): Some of the steps for a major update of the orginal CIGM
implemented in 2007.
The original CIGM should be updated annually to incorporate changes in
development, zoning, comp plan amendments and demographics. The CIGM was
last updated in 2011. As a result, fresh data needs to be collected, entered and
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Packet Pg. 280 Attachment: Exhibit-C--cigm (2812 : Planning Projects and Resource needs)
Exhibit “C”
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processed for those effective zones. Original zones and the associated data would
need to be edited and new zones with their associated data would need to be created
and entered.
The IGM Ver. 1 did a great job of forecasting the eastern portion of Collier
County, however for the original CIGM the data had to be entered for each
individual zone (250). This was time consuming and costly. The new software
is 2 and ½ times faster, saving time and money.
Many of the originally defined zones would need to split into two or three new
zones. Subdividing zones requires additional GIS data to apportion the land
area, number of housing units and vacant parcels into a new data set for entry
into the model. The traffic models have new TAZ boundaries to reduce the size
of the TAZ for a more accurate forecast of development to accommodate
regulatory allowed growth. This will result in new TAZ overlays on parcel data,
fresh updated data collection, data entry and processing.
Expanding the CIGM to incorporate the whole county is a 70% (adding 200
plus more zones) increase in data collection and processing from the original
CIGM.
The server for the CIGM, from time to time needs to update its codes. The
CIGM needs to address its codes to interface with the server’s changes since
2011.
The original CIGM generated reports for the need for commercial, industrial,
parks, schools, fire stations, sheriff sub stations, libraries and motels in separate
excel report sheets in 5 year increments. The new software has all years in a
summary report for easy excess by staff, saving time.
Zone Clusters would need to be redefined to match the new zones and data (i.e.
RFMUD)..
Sub Model Factors and Zone Growth Factors would need to be recalculated
based on the new characteristics of the new zones. For example, let’s say an
existing large zone spanned from an arterial road to less or sparsely populated
area. This old zone is now more populated and broken into two or three new
zones but these new zones have different characteristics than the old larger
zone. Each zone has six different factors that will need to be calculated
including the original zone.
In summary, these are some of the activities that are needed for a major update of the original
2007 CIGM.
It is estimated the cost for a major upgrade and expansion of the CIGM countywide would
exceed $200,000.
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Packet Pg. 281 Attachment: Exhibit-C--cigm (2812 : Planning Projects and Resource needs)
Exhibit “C”
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Proposal 2 (option 2): Implement the highly advanced IGM Ver. 3 to be known as new
CIGM (Ver. 3).
Over the past three years the team has invested capital and time for major enhancements to its
highly advanced new version software. Some of these enhancements are:
Stream lined data entry and processing to reduce costs associated with the original data
entry for each individual zone and processing of the CIGM. The new software can enter
data for the individual zones; 2 and ½ times faster than the original CIGM. As a result of
the cost savings the new software provides 2 more major applications. A utility model to
forecast the demand for water and sewer; and impervious area forecast for storm water, at
no cost to the county. The utility model is valued at $30,000 ant the storm water model at
$20,000.
Provides a separate report for housing and population that now provide separate data for
single family and multifamily including respective household size and vacancy rate data.
The advance model can track the demand for single and multifamily housing. The other
basic sub models including commercial, industrial, parks, schools, fire stations, sheriff
sub stations, hotel/motel and libraries are now available as separate reports for easy
review and data analysis by staff. Saving staff time.
New specialty sub models for water and sewer forecasts provide for a variety of
applications such as permitting for utilities planning and impervious area forecasts for
storm water utility planning.
The ability to download data in 5 year increments by clusters (i.e. RFMUD, RLSA,
Immokalee, etc.). This gives us the ability to test different planning scenarios. For
example, we can test different planning deign for the RFMUD, RLSA, etc, to determine
which is the most efficient design for the decision making.
Separate sub model screens in which staff and agencies can select only the sub model
their desire.
Create summary reports, for staff and agencies to easily read data for all forecasted years
and to use the data for analysis to develop other applications such as affordable housing.
Again saving staff time and money.
Expanding the new software east and west of CR 951 to include the whole county. We
will be able to determine development Impacts County wide. Also traffic model s will
then have county wide data for their applications
The estimated cost to implement CIGM (Ver.3) is as follows:
The new advance basic CIGM (Ver. 3) with the sub models of housing and population,
commercial, industrial, parks, schools, fire stations, sheriff sub stations, hotel/motel and libraries
are implemented, along with the entire advanced enhancements. This includes the Water and
sewer utility sub model
Impervious storm water utility sub model
$200,000
Testing alternative scenarios: Cost will vary from small sub districts to very large sub districts
(i.e. RLSA) and number of zones.
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Packet Pg. 282 Attachment: Exhibit-C--cigm (2812 : Planning Projects and Resource needs)
Exhibit “C”
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Assume 2 small districts (i.e. $2,000) and 2 large districts (i.e. RLSA) $20,000
Estimated total package cost: $220,000
Cost/Benefit Analysis
Utilization of the CIGM for land use modeling and the spatial population distribution for Master
Planning efforts, i.e.: Parks Master Plan, EMS Master Plan, Long Range Transportation Plan,
Corridor Studies, Sector and Neighborhood Planning Efforts, Golden Gate & Immokalee Area
Master Plan, RLSA and RFMUD.
For each one of these plans identified, a full County CIGM would provide the consultants the
land use and population forecasting in a usable excel format. This would represent a significant
amount of data acquisition in the form of a $10,000 to $50,000 reduction in the overall price of
the planning effort, dependent upon the scope of the planning effort.
Over the course of ten years the County will undertake a minimum of 10 long range planning
efforts for its various service providers and/or sub area planning sectors. At a median cost
savings of $30,000 per effort, the County could expect to save approximately $300,000 over the
ten year period with the development of a full County CIGM. With the cost for updating the
CIGM to version 3.0 quoted at $220,000, this would represent a 140 percent return on the
original investment, which does not factor the contributions the CIGM will allow for within the
traditional planning day to day utilization.
11.C.c
Packet Pg. 283 Attachment: Exhibit-C--cigm (2812 : Planning Projects and Resource needs)