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BCC Minutes 02/08/1989 W February 8, 1989 LET IT BE REMEMBERED, that the Board of County Commissioners in and for the County of Collier, and also acting as the Board of Zoning Appeals and as the governing board(s) o~ such special districts as have been created according to law and having conducted business herein, met on this date at 9:00 A.M. in joint WORKSHOP 8&5810. with Naples City Council in Building "F" of the Govern~ent Complex, East Naples, Florida, with the following members present: CHAIRMAN: Burt L. Saunders VICE-CHAIRMAN: Max A. Hasse. Jr. Richard S. Shanahan Michael J. Volpe Anne Goodnight MAYOR: Edwin J. Put2ell. Jr. CITY MANAGER: Franklin C. Jones COUNCILMEN: Kim Anderson-McDonald Bill Barnett Alden Crawford John Graver Paul Muenzer Lyle Richardson ALSO PRESENT: Ell il'".. Hof fL'Ian. Deputy Clerk; Neil Dorrill. County Manager; Charles Gauthier, Comprehensive Planning Manager; Bob Blanchard, Chief Long Range Planner; Dwight Nadeau, Planner; Tom Olliff, Acting Community Development Administrator; Kevin O'Donnell, Public Services Administrator; Cliff Crawford, Parks and Recreation Director; and Jeff Perry, Chief Transportation Planner. Page 1 l H.b" "--.....,.,... FEBRUARY 8, 1989 CORRIDOft ~ STUDY FOR GOODLETTE-PRA.ItX ROAD UD GOLDa can: !' ARDQ y Legal notice having been published in the Naples Daily News on February 5, 1989, as evidenced by Affidavit of Publication filed with the Clerk, public workshop hearing was opened to consider the Final Report of the Corridor Management Study for Goodlette-Frank Road and Golden Gate Parkway. Introduction: Chief Long Range Planner Blanchard stated that in October, 1987, the Board of County Commissioners and the Naples City Council gave approval for Staff to submit a grant application to the State Department of Community Affairs to develop management studies for principal shared roadways within the community. He indicated that the purpose of the studies were threefold: 1. Assist in the development of the respective Comprehensive Plans, 2. Provide for a greater intergovernmental coordination regarding land uses along the principal roadways. 3. In response to t;1e he igh tened interest in urban design that was generated from the R/UDAT study in early 1987. Mr. Blanchard advised that a grant was awarded in March, 1988, in the amount of $50,000 to proceed with the study. He noted that because of the scale down leveJ of the dollar amount, it was decided to proceed with the study for two roadways, rather than five: Goodlette-Frank Road and Golden Gate Parkway. Mr. Blanchard stated that in May, 198A, the Consulting Team of A. Gail Boorman and Associates, P.A., Alfred French and Associates, a".1 Sedway Cooke Associates of ~ ,'\sota, was selected. He indica~ed that the process went through five phases, and the consulting team met with City and County Staff to receive and review feedback, noting that what is presented today, is the final report of that study. He stated that direction will be requested today, to proceed with the recommendations containe.d within the study, and to develop joint regulations that will JIIanage the design of the roadwã.ys. Ms. Gail Boorman, President of A. Boorman and Associates, advised that her firm was the lead consultant in developing the study. Page 2 J -"-"-' --_.",..~"...".."",,_..-..,,_..c_..,.., ,.......,....,...~_.......,... ..,--- FEBRUARY B, 1989 She introduced team members, Mr. Alfred French and Paul Stewart. She indicated that Mr. French's role in the study was to develop urban design strategies dealing with architectural issues, 1. e. heights and setbacks. She noted that Mr. Stewart's r;,le in the study was to help in the analysis of the existing Comprehensive Plans of the codes and policies for the City and the O::;ounty, and to translate recommendations into a format that would be compatible with those plans. Ms. Boorman referred to the Site Anal'lsis portion of the report, advising that a signature street has been defined as a major arterial roadway, which is heavily used by a broad cross section of the popu- lation in order to travel from one section of the community to the other, and because of the high degrep. of exposure, the specific road- ways have immediate impact on the quality of life, and the perceived property value of the community, as a whole. She noted that the team feels that it is necessary for a network of signature streets to be defined, and indicated on City and County Comprehensive Plans. Ms. Boorman provided a slide presentation of Goodlette-Frank Road and Golden Gate Parkway, depic'dng the various land uses, drainage easements, anticipated interchan;:¡e, and the differences of the character and environment of each of these roadways. She not.ed that the identifying characteristics of the roadways are listed in the Site Analysis Phase. She noted that these characteristics lead the team to the formation of urban design Goals and Objectives for each section of each corrid::Jr. She indicated that there needs to be a rational basis for what will be done, as to .he way things are and the way things are projected to be according to the plan, and forming appropriate ideas for the physical and visual c~aracteristics, noting that there is more to a design theme than landscaping the medians or planting trees along the sides of t.he road. Ms. Boorman stated that development controls ã:'e needed for the factors which will be seen from the roadways, sinc'~ they have a substantial affect on the community, as a whole. She advised that urban design themes have been ident if ied, with the desired types of Page 3 { ~ --...-. '-----""" .. """""--""".""""""'" ...,.......,..,... """'-- FEBRUARY 8, 1989 materIals and the way to use them in each of the corridors. Councilm~n Crawford referred to the 10'-15' functional buffer zone, and ~uestioned whether this is suggestjng an eminent domain situation? Ms. Boorman noted that the problem in that section of the Goodlette Corridor, is that there is no room in the right-of-way to develop anything along the edges, and at the present level, people are not complying with the code L1inimums, or maintaining what they should be. She indicated that the most desirable scenario would be to form a special district in that area which will provide fundin1 for landscape improvements in the roadway, or to develop an easement, which would require an agreement of the individual property owners for landscape improvements. Commissioner Saunders noted that one of the policies that the Board of County Commissione~s has discussed in the past, is the use of xericscape landscapIng methods to limit water consumption, and questioned whether this type of landscaping would fit into the plan? Ms. Boorman replied affirma~ively, noting that this concept is recommended ill the report as a prinçipal that should be followed. She indicated that when possible, the re-use of gray water is an effective way to get water into these kinds of ar~as at a low cost. Councilman Crawford stated that he understood that Goodlette was to be considered as a semi-expressway, an~ questioned whether Goodlette is to be widened? Chief Tr~nsportation ~lanner Perry advised that the consultants recoDllllendations, as presented to the MPO, include~ an additional faci- lity to be provided between Goodlette Road and Airport Road. He indi- cateù that if that fac ill ty is not provided within 10-15 years, additional capacity will be required on Goodlette rtoad or Airport Road. He noted that there is a four-lane section of Goodlette, north of Golden Gate Parkway that is to be converted to six lanes. Ms. Boorman presented graphics of the roadways, depicting resi- dential, commer':'~<3.1, and institutional uses, and the characte.-r of the Page 4 £ ,. .., --. .-- ,.-. ,,~..,--...-... FEBRUARY 8, 1989. landscaping, so that the general trends could be perceived. She pre- sented other drawings showing what could be done within the rights-ot- way, and how developments adjacent to the rights-of-way can be impacted. She noted that the theme estab~ished is to develop con- tinuity within the comm1lnity district. She indicated that Goodlette Road, proceeding north to th..... ~rail, has an entirely different character, with a lot of commercial development at the Coastal Mall, and has little greenscaping. She noted that this area should be sot- tened, as it is the gateway to the coastal area. She stated that the regional parkway district from Santa Barbara Boulevard to Goodlette Road is the regional gêl.teway district and the area to diverge from the 2015 Plan is the cross section propnsed for widening of the Parkway. She indicated that the team is recommending that the urban section be considered for curbing, and landscaped buffers, which would reduce the need for massive clearing on either side of the roadway. She referred to the regional parkway district and the narrowness of the right-of-way between Airport Road and Goodlette, noting that she be 1 ÍI"'.Ves street trees should be established to introduce an appro- priate level of landscaping. Ms. Boorman referred to a drawing prepared by Alfred French, illustrating the height setback principal for the corridor, which states "the higher you go, the farther back you should go". She indicated that the formula for this gives a slope or view cone from the road of 1: 2. She noted that other t :1 a few exceptions, the buildings along Goodlette Road are about 60' froru the right-of-way. She noted that Estates Zoning predominates along Golden Gate Parkway, with a minimum setback of 75'. She stated that the team b,dieves that it is unattractive to build to the full allowed height a' the setback line, to avoid such buildings as the Comfort Inn. Councilman Richardson questioned how far back an 8-story building would have to b~ set back under the proposed plan? Mr. French replied that if the average floor height is 12 " the setback would be 200 " adding that 1-. story additions could be placed Page !) (p -",-, . --, '""""-"""""-'" FEBRUARY 8, 1989 in front of that 8' building. He noted that the real emphasis is to provide a silhouette of trees against the sky, as opposed to huge buildings. Councilman Graver questionad whether specific areas had been looked at, where there may be a ~roblem adopting this type of prof He? 11r. Paul Stewart of Sedway Cooke Associates stated that the most constrain~d area is Goodle_te-Frank Road, since the narrowest lots exil5ot there. He noted that there is a lot of opportunity in Golden Gate. since there is a lot of open space. He indicated that in terms of codes, it is suggested to arrive at consistencies which would have compatible standards for heights, setbacks, landscaped buffer areas, and standards. With regards to landscape regulations and signage, Ms. Boorman noted that the team is suggesting that the minimum dimen&ion for required landscaped areas be increased to 10', and that the size and. , plan\: material be upgraded, with the proviso that required landscaped areas not serve the duplicate function of water management. She indi- cated that a landscaped zone of 25' has been recommended for Golden Gate Parkway. She indicated that it is suggested that the County bring the signage codes on Goodlette Road into closer compatibility with the City's codes, and it is suggested that a low-key ground signage be encouraged on Golden Gate Parkway. Ms. Boorn:an stated that :..th regards to the funding and implemen- tation of this Plan, it is re::ognized that these are County Roads, but they do impact the City, and in many areas, are surrounded by the City. She noted that mutual cooperation will be required to allow a physical improvement project to move forward whicb may occur in the right-of-way limits. Sre l1(ated that it is suggeated that an over- seeing group be formed that would assume the responsibility for deve- loping a program, funding strategy priorities, etc., in conjunction with City and County staff. She indicated that the Citizens Advisory Committee to the MPO could perform thi& function, adding that they are familiar with traffic and roadway issues. Page 6 1 --,---_u _.... . -- ".,."..",..,..,--.----.--....., "'...-'"..,- " . ---,---. ----. - , ,-----,-- FEBRUARY 8, 1989 Ms. Boorman referred to the implementation of framework a$ defined in Figure 26 of the Final Report, noting that the MPO will denignate the CAC as the overseeing group; there will be technical Staff sup- port; the City and County staff will be in the process of revising the Land Development Regulations, pursuant to the new Comp Plan. She indicated that the CAC will hold project meetings and workshops, begin to define a funding strategy, and adopt an action pcogram which wl11 accommodate priorities of phasing and scheduling. She noted that th~ City and County may desire to adopt an interlocal agreement for funding and streetscape improvements. In relation to funding and financing strategies, Ms. Boorman stated that the team is advocating a network of signature streets. She noted that it is suggested that a modest commitment be made by the City and Coun\:y to institute such a program, which would provide a momentum amongst the groups in the community who are interested in these types of projec:ts, to raise additional funding. She indicated that there is a list of funding mechanisms in Section "E" of the rp.port: Capital Prújects 1.000 Mill levy, Special Taxing District, One Cent Sales Tax, Road Construction Funds, Tax Abatement, Incentive Programs, and Rebateable Agreements. Mr. Stewart stated that the Capital Projects 1. 000 mill le....y is a mechanism which is easy to qr3.Sp, but not~d that there is a lot of competition for that money 1vr other needs which are necessary for safety or health is(.ues. He lndicated that a Special Taxing District is commonly used in other areas of the State, where a certain portion of the property owners who benefit by the improve~~nts would be assessed, or possibly, the entire City and County, since they will have the benefit of an imp:oved visual appearance from higher quality of life values. He stated that the One Cent Sales Tax Issue has the most promise for financing. Mayor P\ltzell questioned if a ballpark figure had been determined for this Plan? Ms. Boorman stated that this is an item that the CAC. in conjunc- Page 7 9 -- ---- -.---,---..-..-.---,....-. '-....-..,-,.,.-.., , FEBRUARY 8. 1989 tion with Staff would begin to develop, as far as the level of achieveaent. She indicated that these are the types of decis.ions that the Beautification District Committees make for their Districts. She noted that they have an advantage, whereby, they know what their budget is. She indicated that an initial commitment, on an annual ! basis of $100,000 is suggested for seed money for physical improve- ments, which will stimulate and encourage the interests of the public to raise additional funds. In answer to Mayor Putzell, Ms. Boorman noted that the team would ~ like to see a pilot project begin. She indicated the she believes that the intersection ')f Golden Gate Parkway and Airport Road is a good location to begin, since it is the current juncture of the City and the County, and there may be access to the gray water line tor irrigation. She noted H.at improvements on the street corners could be implemented, and would have immediate visual impact, and inexpensive to implement. Mr. Stewart stated that the team discussed incentive programs, whereby negotiations would take place with property owners or develo- pers, in exchange for improvements, for increased bonuses or den- sities. He indicated that another option is rebateable agreements, in that a property owner funds the improvement upfront, and over a period of time the public body rebates the money back, upon an agreed contract. He noted that oth~r communities have used an "Adopt a Median Program", where spon!.:Jrs contribute for the improvements. He stated that community image is very important, as part of U.e çharacter and quality of an area, adding that if steps are not taken to plan for this, Naples will be like many other communities that are not attractive places to live or work. Ms. Boorman advised that the two most diff ir;ul t areas requiring improvements are the southern portion of Goodlette Road and the f western portion of Golden Gate Parkway, because there is not enough room in the existing right-of-way. She noted that the objectives can be accomplished in other areas in the existing right-of-way or pro- Page 8 . q . . ,- "".,..,~.._- . . ._-_._",.~ "'""'-" --. .' '. FEBRUARY 8, 1989 posed r~ght-of-way, per the traffic plan. She stated that hopefully, people will allow the first 10' of their property to be dedicated as a landscaping easement. She indicated that she is uncertain as to the legal basis for eminent domain for aesthetic purposes. Commissioner Volpe stated that this project is for the expansion of signature streets, noting that he characterizes Airport Road as a signature street and Immokalee Road is a future signature street. He indicated that he believes something should be done now in the designing of the six-laning of Airport Road, for future rights-of-way, so that this problem does not arise down the road. Ms. Boorman agreed, noting that if physical improvements are to be made in the future, the pipes should be put under the pavement during design, for anticipatory issues. Mr. French noted that tllere have been concerns regarding costs by both bodio:s. He indicated that he would like to direct attention to the most cost effective and least expensive means to the taxpayer in preserving what Naples presently has, noting that remedial construc- tion is enormous. He stated that the proposed costs for improvements are minimal compared to salvaging what will be required if development is allowed to proceed, unchecked, within the next couple of decades, urging that consideration bp given to what happens within the right- of-way, and adjacent to it. He noted that from an urban design point of view, Golden Gate Parkway is onE: of the major roadways in Collier County, noting that Goodlette Road is also very important. He indi- cated that the image that exists today on Golden Gate Parkway could be lost in a matter of months, if ~ot years, and to save what is there, is inexpen'3ive, noting that the best device is the concept of a view plan, where the image of trees against the sky is preserved, and not allow ma~-made device~ to intrude in a close perspective in such a way that it produces an urbanized environment. He indicated that the roadways rights-of-way in Collier County are minimal in these areas, and to make them attractive requires the program as outlined by Ms. Boorman. Page 9 JD ""-'-'" ..........-....----...-- _._~....._~." ""-"'-'- --'-' "" , FEBRUARY 8, 1989 Mr. French stated that a ,~ry conscious attempt was made not to change the zoning, land use, or height restrictions, leaving these decisions to the City Council and the Board of County Commissioners. He indicat~d that he is recommending an overlay district which will help to preserve these areas. Ms. Boorman advised that the reason the team focused on Golden Gate Parkway and Goodlette Road, is because the most opportunity to protect what is already there, is in that area. She indicated that studies should be done for other corridors, as well. She stated that the overlay district, as referred to by Mr. French, will be similar to an "ST" District, which restricts certain uses in certain areas, adding that is where landscaping requirements, signage and setbacks will come into the picture. She indicated that the team has iden- tified the zone of influenc,,- as 400' from the right-of-way line. She suggested that the City and County adopt identical overlay ordinance. for continuity. Councilman Richardson stated that the two bodies should accept the sketch as presented by Ms. Boorman, as setbacks on the two subject corridors, adding that anything in the future will be required to fit the 2:1 Plan. Commissioner Saunders indicated that a decision on Mr. Rlchard- son's suggestion cannot be , '.de at today's workshop, since it is a zoning ordinance that would be presented to the Planning Commission, and it is required to be advertised. Commissioner Volpe stat~å that he feels that Mr. Richardson's , suggestion is a good one, but he does not have the same sense of urgency. Mr. Fr~nch stated that the Land Use Plan is in order, but there are some old time provisions in the City and County ordinances which should be examined. He indicated that he feels that Mr, Richardson's suggestion has some merit. Commissioner Saunders stated that he agrees that something should be done t.:> preserve the corridors, but he is not convinced that the Page 10 J I ""---'~-""'-""'-"--"'--"""" ..---. -., ~ ..-,,- ....",., "-'-'- FEBRUARY 8, 1989 2: 1 ratio i" appropriate. He noted that he believes there should be input from Staff relating to the appropriateness. ... CO..i88ioner Volpe left the ...tlng at 10:1515 A.M. ... Mr. David Borden, representing the Barron Collier Company, and the land holders of the property at Golden Gate Parkway and Airport Road, commended Ms. Boorman on her efforts in creating a consistent and uniform program for this area. He stated that his company's pro- posed project, which will be submitted for the DRI process in 45-60 days, will agree with the objectives and intent of what is being pro- posed for the overlay ~oning district. He indicated that the subject location is already dealing with the propoRed annexation. He noted that he was contacted after the study was prepared, and there was a lot of discussion regarding three drawings which were presented. He suggested that action not b", taken on the plan until the proposed project at that corner is reviewed to determine the impacts of imple- mentations on this project. He stated that there is an Activity Center designated for that corner, which will limit what can occur. There were no other speakers. Co8ai.sioner S.~r8 8OV8d. _conded by Co_i..iener 1Ia8.., to accept the Corrldor Manage..nt Study for Goodlette-Frank Road and Golden Gate Parkway; dlrect Staff to ..et wlth the te.. ..aberø that prepared the Study. and the 1 ty Council to arrlve at Il1pl...ntatlon .trategle. tor this Study. and to Include other aajor roadw8y. within the County, and addre.. the que.tion reg~ding the Overly Di.trict and preeent 8&R8 to the Board ot County Co_l..loner. for coneiGeratlon. Mayor Putzell suggested that the studies of th~ other corridors not delay movement with respect to the two subject corridors that have been discussed in detail today. C08a18sioner Saunder.,~ hi. 8Otion to~ Statt to CQ88 back.. qulckly.. po..ible wlth coneideratlons of the two 8Ubject corridor., and then 8tudy the other carr idors. Co..i..ioner Baase accepted the "'~n t. Mr. Olliff stated that he believes Staff could have a "rough" Page 11 t It- ~'--- . ", ~""-~~""~-'-'---'._' _"....,~.._..,._,_....,---..,..- -..,...""...."...", --- .. .'--_.....~. FEBRUARY 8, 1989. recommendation in 30 days. County Manager Dorrill indicated that there is a mutual interest, and it would be an encou~aging sign to the public if both City and County Managers were instructed to develc.p, pick. and choose implemen- tation strategies, bring them back within 30 ~ays, and then comply with the legal process relati~e to advertising, Planning Commission, MPO, etc. It was the consensus of the Board of County Commissioners and City Council to accept County Manager Dorrill's suggestion. Upon call for the question, the action carried 4/0 (Ccmalaai0D8r Volpe not preaent). Councilman Richardson stated that in order to give a concept of wh~t buying right-of-way means, the cost for rights-of-way in expanding the Trail from Davis Boulevard, just pass the Courthouse, will be $6 million. He indicated that he does not want to see the sub: ect of roads deluded, noting that the MPO and Staff is doing an excellent job. He noted that he feels a Bay Management Organization should be set up to address the problems, and leave the road MPO the way it is. Commissioner Saunders stated that this is the major portion of the direction given to County ~'d City staff to advise on how to imple- ment this type of a program, which will include the actual structure of an organization, whether the MPO, or a ~eparate organization. He agreed that the authority of the MPO should not be dt:luded. Mayor Putzel1 stated that on behalf of the City, he is impressed with the report and the presentation. He noted that it is a happy coincidence that the recommendation today is consistent with the median landscaping that the City has undertaken. He advised that he wants to cooperate in moving forward to preserve the appearance and qualities of the community. There being no further business for the Good of the County, the meeting was adjourned by Order of the Chair - Time: 11:15 A.M. ; Page 12 ,1 ""O,......"'_,-_"_- ,.. .,--