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BCC Minutes 06/07/2005 W (w/PARAB re: Beach Access) June 7, 2005 COLLIER COUNTY BOARD OF COUNTY COMMISSIONERS AND PARKS AND RECREATION ADVISORY BOARD BEACH ACCESS JOINT WORKSHOP TUESDAY, JUNE 7, 2005 LET IT BE REMEMBERED, that the Board of County Commissioners, with the Joint Board of County Commissioners and Parks & Recreation Advisory Board in and for the County of Collier, having conducted business herein, met on this date at 2:00 p.m. in WORKSHOP SESSION in Board Meeting Room F, third floor, Administration Building, of the Government Complex, 3301 East Tamiami Trail, Naples, Florida with the following members present: CHAIRMAN: Commissioner Fred Coyle Commissioner Donna Fiala Commissioner Jim Coletta Commissioner Frank Halas Commissioner Tom Henning ALSO PRESENT: Jim Mudd, County Manager Leo Ochs, Deputy County Manager Marla Ramsey, Public Services Amada Townsend, Parks and Recreation Mary Ellen Donner, Parks and Recreation Page 1 COLLIER COUNTY BOARD OF COUNTY COMMISSIONERS ;}. JOINT BOARD OF COUNTY COMMISSIONERS AND PARKS & RECREATION ADVISORY BOARD BEACH ACCESS WORKSHOP AGENDA June 7, 2005 2 p.m. to 5 p.m. Fred W. Coyle, Chairman, District 4 Frank Halas, Vice-Chairman. Commissioner, District 2 Donna Fiala, Commissioner, District 1 Tom Henning, Commissioner, District 3 Jim Coletta, Commissioner, District 5 NOTICE: ALL PERSONS WISHING TO SPEAK ON ANY AGENDA ITEM MUST REGISTER PRIOR TO SPEAKING. SPEAKERS MUST REGISTER WITH THE COUNTY MANAGER PRIOR TO THE PRESENTATION OF THE AGENDA ITEM TO BE ADDRESSED. COLLIER COUNTY ORDINANCE NO. 2004-05 REQUIRES THAT ALL LOBBYISTS SHALL, BEFORE ENGAGING IN ANY LOBBYING ACTIVITIES (INCLUDING, BUT NOT LIMITED TO, ADDRESSING THE BOARD OF COUNTY COMMISSIONERS), REGISTER WITH THE CLERK TO THE BOARD AT THE BOARD MINUTES AND RECORDS DEPARTMENT. ALL REGISTERED PUBLIC SPEAKERS WILL RECEIVE UP TO FIVE (5) MINUTES UNLESS THE TIME IS ADJUSTED BY THE CHAIRMAN. IF YOU ARE A PERSON WITH A DISABILITY WHO NEEDS ANY ACCOMMODATION IN ORDER TO PARTICIPATE IN THIS PROCEEDING, YOU ARE ENTITLED, AT NO COST TO YOU, TO THE PROVISION OF CERTAIN ASSISTANCE. PLEASE CONTACT THE COLLIER COUNTY FACILITIES MANAGEMENT DEPARTMENT LOCATED AT 3301 EAST TAMIAMI TRAIL, NAPLES, FLORIDA, 34112, (239) 774-8380; ASSISTED LISTENING DEVICES FOR THE HEARING IMPAIRED ARE AVAILABLE IN THE COUNTY COMMISSIONERS' OFFICE. Page 1 June 7, 2005 I. Invocation and Pledge o( Allegiance II. Presentations followed by discussion a) Topics raised at previous workshop b) Shuttle systems c) Beach stickers d) Capital and operational plan, budget, and funding III. Public Comment IV. Adjourn Page 2 June 7, 2005 June 7, 2005 I. The Board of County Commissioners workshop was called to order by Chainnan Fred Coyle on Tuesday, June 7, 2005 at 2:00 p.m. The Pledge of Allegiance was recited. II. Presentations followed by discussions a) Topics raised at previous workshop Marla Ramsey, Public Services Administrator: Gave a DVD presentation showing the beaches of Collier County, and the areas of concentrated use were identified. The following areas of concern were discussed. 1. Carrying Capacities of beaches varied according to square footage of beach, access points and parking. 2. There are eight beach locations throughout Collier County that have restroom facilities. 3. Marco Island, Vanderbilt and Pelican Bay beaches are raked, groomed, and patrolled for loose litter on regular schedules. The City of Naples maintains all City beaches and the area from the northern city line to Clam Pass. Consideration was given to providing additional staff to maintain the beaches. The cost for each additional worker would be $33,000 per year. b) Shuttle systems Amanda Townsend, Parks and Recreation: Gave a presentation covering the following areas. 1. Traffic control in Vanderbilt Beach is an ongoing problem. Sheriff's deputies have been hired to provide traffic control at the intersections of Gulf Shore Drive and Bluebill Avenue and Gulf Shore Drive and Vanderbilt Beach Road, and this has alleviated traffic problems. 2. Pilot Beach Shuttle Program was run Memorial Day weekend. Customer comments included a suggestion that the shuttle run more frequently and that stops be added. Most indicated they would use the shuttle again. 3. Vessel shuttles were recommended to run from Bayview Park to County- purchased property on Keewaydin Island. Shuttles would be a value-added beach access opportunity, providing opportunities to educate the public on environmental and wildlife Issues. 4. Cooperation with the State and cities regarding beach access was recommended. Page 2 June 7, 2005 Discussion Shuttle hours of service should be changed to operate from 10:00 a.m. to 4:00 p.m. Hours of service can be reduced and still provide the same level of service. Transportation charged a flat fee for shuttle service. Was paid for out of Beach and Water Operating Budget. Areas of beach most utilized were areas that provided parking and restroom facilities. Cost of running shuttle would be substantially lower on ordinary beach days than it was for the initial run on the holiday weekend. c) Beach Stickers Mary Ellen Donner, Interim Beach and Water Manager, Parks and Recreation: Presentation on Beach Parking Sticker Administrative Fee Implementation. 1. Public was polled as to whether they would use a beach shuttle, whether they would prefer an annual fee for a beach parking sticker of$10, a two-year fee of$20 for a beach parking sticker, or no parking sticker but to be required to pay $5 per day parking. The majority (48%) preferred a $20 fee for a two-year beach parking sticker. 2. Necessity to recover administrative costs and derive additional revenue was discussed. Bar coded stickers could be used to trigger gate at Vanderbilt garage. It was suggested that the origination point of beach goers should be kept track of. This would help in accurately handling cash. It was suggested that renewal of stickers be timed from date of purchase so that renewal would be spread out throughout the year rather than all renewals in October. 3. In order to implement, we would need to add on to the existing park membership computer system, would require additional software licenses and sticker printers would need to be purchased. Must be resident to purchase beach parking sticker. Distribution at City site was recommended to be eliminated. Hope to have ready by 1012005, beginning of fiscal year. 4. Requiring a beach parking sticker would encourage two-car families to use one, larger capacity vehicle for beach going. Origination point of users would be tracked initially at Vanderbilt with future potential to do same at other parks via hand-held scanners. Point of origination infonnation would also be helpful if necessary to communicate with customers regarding issues concerning their beach going. If it is decided that shuttles are to be the primary solution, then beach parking stickers would not be recommended, rather a $5 fee for all parking, with the shuttle being free. Costs and benefits were outlined. Five-year return on investment is estimated to be $3.1 million dollars. Purchasing parking sticker does not guarantee parking space at a particular facility. Page 3 June 7, 2005 Discussion Public was not polled as to whether they would like things left as they are. Beaches are considered by many to be owned in-common. Concern was expressed regarding tracking of the origination point of beach users on an individual basis. It was suggested that the infonnation could be provided by zip codes rather than individually. There is currently no tracking. Survey could be done on voluntary basis. It seems fair to charge the people who use the parking facility for its costs. Non-residents of Collier County are currently charged $5 per day for parking. $20 sticker fee will not cause need for increase in staff. User fees are intended to generate revenue. Using volunteers to issue parking stickers will be looked into. Sticker fees will have a side effect of causing families to take fewer vehicles to the beach. d) Capital and operational plan, budget, and funding Mary Ellen Donner: Gave presentation on Capital and Operational Plan and Budget outlining five priority projects and recommended funding sources. 1. Gulf Shore Drive support facilities cost to purchase is $10,000,000; development, $400,000; operating costs, $2400. Restroom facilities would be provided. 2. Vanderbilt accesses 2-6, cost to purchase is zero; cost to develop would be $1,000,000; operating cost, $60,000. These are currently in our inventory. Additional staff would be required. 3. Clam Pass southern boardwalk, cost to purchase would be zero; cost of development would be $2,000,000; operating costs, zero. Boardwalk would be extended to southern portion to spread patrons out. 4. Tigertail southern restroom and dune crossover, cost to purchase would be zero; development cost would $1,000,000; operating cost would be $2,400. Boardwalk cannot be extended. Tram service could provide closer access. 5. Vessel shuttle from Bayview to Keewaydin, cost to purchase is $2,500,000; cost to develop would be $1,000,000; operating costs, $50,200. Cost of a two-vessel shuttle service is estimated to be $352,000 minus user fees. Vessel shuttle would provide island access to people who do not own vessels. Discussion Shelters will be added, restroom facilities would be provided, possibly a small concession. Vessels will accommodate about 40 people per boatload. Shuttles will pull up to the dock on the bayside and people will walk across. Shuttle will run continuously. Figures are for 176 days per years, weekends, holidays and everyday during January, February and March. Purchase of a five-acre parcel by the County is being considered. Purchase of property adjacent to State-owned property is under consideration. Page 4 June 7,2005 Mary Ellen Donner: Viable projects, funding. 1. Vanderbilt Access 8, still viable, being looked into. 2. Conner Park shelter and restroom, should be looked into. 3. Clam Pass parking garage, development costs would be approximately $10,000,000, operating costs would be $72,000 offset by parking fee revenue. 4. Vehicular Beach shuttle (Vanderbilt Loop), purchase cost would be zero; development cost would be $861,000 for three buses; operating costs would be $216,400. Recommended that shuttle be refitted allowing for more foot space for storage of carry- ons. Discussion Project list seems slated entirely for District 2, Vanderbilt Beach area. No shuttle buses proposed for anywhere else. District 2 cannot take on responsibility for all of Northern Collier County. 5. Vehicular beach shuttle (Naples Loop) coming out of Government Complex and working its way down the beach accesses in the city, will require a few more buses. Budgetary figures are being investigated. 6. Vessel shuttle from Cocohatchee to Barefoot Beach, cost of purchase, $1,200,000; development cost would $300,000; operating costs are estimated at $25,100. A one-vessel shuttle service would cost $176,000 annually. 7. Additional vessel shuttle routes from Goodland or Caxambus going to Sandy Lake, Cape Romano areas are being investigated. 8. Total gains were outlined. 9. Proposed by Parks and Recreation additional funding sources include fourth penny tourist tax, dedicated property tax millage and user fees, top three elements of funding sources. 10. Current funding sources include $2 million dollar dedicated tourist tax, $500,000 of which pays debt service on the Vanderbilt parking garage, $200,000 is used for upkeep of existing facilities, $1.3 million dollars remain for new beach access projects. Impact fees total $6 million dollars per year, $3.4 million of this pays debt service on North Collier Regional Park, $2.6 million dollars remains for purchase and development of all growth-related park projects. User fees from beaches total $600,000 per year, $400,000 pays City for reciprocal beach parking program, $200,000 for general beach-associated operating and maintenance. Ad Valorem-funded capital at $800,00 per year, Page 5 June 7, 2005 use of funds varies from year to year. Example projects include neighborhood park, boat ramp projects, facilities with a regional draw, and municipality funding requests. Discussion Five priority projects represent projects recommended to receive funding. Land purchases should be accomplished first. Schools and banks should be contacted to get agreements as to parking. There is currently available for projects approximately $1.3 million dollars from tourist development tax, which is recurring revenue. $1.3 million could be leveraged for $10 million dollars to purchase land. Remaining operations and capital improvements need funding. This includes proposed land purchase on Keewaydin Island. $7.5 million dollars is still needed to fund projects. Potential funding sources include impact fees, administrative fees, leveraging of funds, user fees. (Recess from 3:15 p.m. to 3:30 p.m.) III. Public Comment Diane Ketcham: Stated she is not against beach shuttles. Shuttles should not drop off passengers in residential areas. Disputes figures given for shuttle usage. First passengers were dropped off at 11 :00 a.m. Memorial Day weekend. People should be dropped off by parks which is where they want to go. Beach Access No.7 has not been started. Fences have been put up and they blocked off the sidewalk in April. Concerned about pennits to build during turtle nesting season. Is sidewalk going to be blocked off indefinitely, forcing residents to walk in road to get to beach. Access is dangerous, fence is down, should be removed, there are sewage problems. Fence should be removed from access. Beach shuttle caused traffic jam. There is a problem with people passing shuttle in oncoming lane. Beach goers should be dropped off at Wiggins Park or Vanderbilt Beach. Ruth McCann, Executive Director, Marco Island Civic Association: Stated she is opposed to a tram at Tigertail, it would commercialize the beach. Residents Beach has only access road available to emergency vehicles on Marco. Felix Jarczyk: Stated he is opposed to having a shuttle serve the area of Gulf Shore Drive and Sea Breeze. Shuttle needs to have an area where it can get off the road, allowing passengers to get on and off safely. Stated that the County will incur liability for creating a dangerous situation with the shuttle. Linda Columbo: Regarding Tigertail Beach, there is enough land now that the County could put a dune walk-over from the southern parking lot and restrooms now. Land does not need to be purchased. Would like to see at end of dune walk-over a deck or chicki- hut that could be used by handicapped residents. Never, ever wants a tram on the beach. Russ Columbo: Stated that the tram is a bad idea. Never wants a tram on the beach. Page 6 June 7,2005 Charlette Roman, President, Friends of Tigertail Beach: Stated Tigertail Beach does not have an access problem. It has restrooms and parking. Sand Dollar Spit is a critical wildlife area, protected by law, and should not be disturbed. It is one of the ten most important birding sites along the Eastern coast of the United States. Opposes a motorized tram on sand. John Arceri, Marco Island City Council: Stated a South-end restroom and dune walkway is a good idea. Opposes a tram ever. Robert M. Steiger, Park Manager, Delinor Wiggins Pass State Park: Stated that the figures on the State park carrying capacity for beach are incorrect. State park, 320,000 square feet is more accurate. Level of service per square foot is 200 people. We figure 1,620 people come at one time. Scott Straub, Center for Independent Living: Wants to see more handicapped beach access on all beaches. Bruce Burkhard, Vice-Chairman of Vanderbilt Beach Zoning Committee: Gave a presentation on beach usage in Collier County. There is no access problem, but rather a parking problem. Spoke in favor of restroom and food and beverage facilities. B.J. Savard-Boyer, President, Vanderbilt Beach Property Owners Association: More parking would increase beach use. Stated she is against trolley as it is dangerous. A large number of shuttles would be needed which would be too costly. Stated she disagrees with figures given for use over Memorial Day. Stated it is not a good idea to improve beach access at Gulf Shore Drive since that is not where people want to be let off. A plan is needed to spread beach use over all of Collier County and Naples. Joseph P. Bianco, Jr.: Suggested developing a five-year master plan for beach access development rather than adopting a project-by-project approach. Master plan needs grass- roots support which requires educating the public. Maximizing beach usage depends on adequate parking. Joe Connolly, Vanderbilt Zoning Committee, Vice-President of Beach and Bay Association, President, Mansions Condo Association: People prefer to go to State park rather than where the buses were letting them off. Buses should drop people off where they actually wish to go. Figures on shuttle usage over Memorial Day are too high. Graham Ginsberg: Stated that more parking is necessary. Suggested that families should get two beach parking stickers for $20 per year. Opposes charge of $5 per day for parking. Temporary parking situation at Vanderbilt Beach needs to be improved. We need to bus to Gulf Shore Boulevard. Tigertail is too far to walk. Spoke in favor of improving handicapped facilities. Page 7 June 7, 2005 Jo Baillie, Marco Island Resident: Opposes tram, is glad it is off the table. Favors dune crossing at south end with restrooms. Opposes boardwalk. Believes beach access is paid for through taxes and does not favor any additional charges. No sticker system should be instituted and definitely no sticker indicating where she comes from to use beach. Robert Burns, Gulf Shore Drive Resident: There are three ten-foot walkways from Gulf Shore Drive to the beach located at the foot of Bayview Avenue, Channel Drive and Seabreeze. Original deed of restrictions for Vanderbilt Estates showed that the single- family area, comprising 97 lots, was not a public beach. June 15, 1976, the Board of County Commissioners said that those ten-foot beach easements that are provided along Gulf Shore Drive are provided for the use and convenience of residents in blocks A, B, C, and D of Connors Vanderbilt Beach Estates. Those blocks are the areas enclosed in that single family residential. It is unacceptable to consider those as public beach accesses when the record is clear they are private. Is opposed to converting to public access. Dick Lydon, Property Owners Association of North Collier County: Stated beaches need good management and more funding, must prepare for the future. Action is long overdue. Now is the time for action, not talking. Lloyd L. Bowein, Gulf Shore Drive Resident: Private access pathways have always been for private use of residents. Ten feet is not large enough to create public access. It is only an easement. There is not currently enough land left for parking. Dr. David Buser, President, Sea Gate Homeowners Association: Prefers concept of beach shuttle over parking garage which will become outgrown. Shuttles can increase capacity as need increases. Residents oppose parking garage as it would overlook single- family homes. Gate for nighttime use at Registry Hotel is appreciated. There is a tremendous liability issue with regard to Clam Pass. State Supreme Court has issued a ruling that municipalities are liable for injuries to swimmers where known hazards exist. The County cannot take away navigability of the Pass to the residents of Seagate. That has been challenged in the past, and the Corp of Engineers ruled that it was navigable and insisted on the installation of a drawbridge which is not functioning now. It is the County's responsibility to fix it. Regarding handicapped use of the beaches, it could be improved with the help of the Registry which operates the facilities at Clam Pass Park. It is required by law that most commercial entities are required to give handicapped access, so possibly they would be able to help with providing handicapped access. Regarding Keewaydin Island, there is no running water at the area under consideration. There is running water and power at the north end of the island. Natural access points that come right up to the beach and are used by public that are much further north would be a much shorter access point to reach and with the State's cooperation, water and power lines could be run. Nicole Ryan, Conservancy of Southwest Florida: No tram at Tigertail. Supports restroom facilities and dune crossover at Tigertail Beach. Page 8 June 7, 2005 Robert Forbis: Stated there are 13 single-family homes on Vanderbilt Beach. The area being considered for public access was specifically intended for residents and is provided for in deed restriction which goes with all homes. Opposes use of three access points for public use. Opposes busing beach goers through a residential neighborhood. Mark Muller, Esquire, Quarles and Brady, LLP, Representing Robert Forbis: Agrees with much of what Mr. Bums and Mr. Bowein said regarding the access walkways at the end of Seabreeze, Channel and Bayview. These were stated to be in inventory at the beginning of this presentation and in fact they are not. The plat for this area showed these as access walkways and were never dedicated to the public. The plat dedicated the streets and waterways to the public, not these access points. The deed restrictions show that there was no intention to have a public beach in this area. No public beach meaning there was no intention to make these access points available to the public. The County Commission in 1976 vacated an easement at La Playa and specifically found those three beach accesses were private and intended only for the use and convenience of the residences in those four blocks which is Seabreeze, Channel and Bayview. For these reasons, those three access points are private, not public and should not be considered in the inventory of the County. Councilman Henning asked who enforces the deed restrictions in this community. Mr. Muller responded that it was probably the Vanderbilt Beach Property Owners Association. Councilman Henning asked whether there are any cases where the deed restrictions have been enforced in this community. Mr. Muller responded that it is not so much a matter of enforcing the deed restrictions. He does not think that the Association can prohibit the County from using the public beach as a public beach. What it shows is the intent of the developer when they did the plat for this area and showed their intent for these access walkways was not to create public access points but to create private access points just for the use of the residents. Councilman Henning asked if there is public beach access next to La Playa. Mr. Muller responded that there was a beach access point that was vacated at La Playa. If you look at the resolution the County adopted in 1976 when it vacated it, it said that the public need for the beach access at La Playa is greatly diminished by the fact that two points of private beach access exist within 400 feet of the subject property and one point of public beach access exists at the west terminus of Vanderbilt Beach Road approximately one-half mile south. It is clear that the County recognized that the beach accesses we are talking about now were private, the public one was at the end of Vanderbilt Beach Road. Page 9 June 7, 2005 Doug Fee: Stated the County should maintain one parking space for every 150 residents and this should be made a part of the Code. He stated he is in favor of paying extra taxes to provide required parking. Discussion Need to address funding sources was discussed. An extra penny from the tourist tax could only be used for promotion. An ordinance change may be needed to dedicate more funding for the beaches. Methods of future development of Keeywaydin Island were discussed; discussion included acquiring land on Keeywaydin, create a park with picnic benches and grills, look into building a drawbridge over Gorden Pass. It was pointed out that Keeywaydin is private property and it may be impossible to accomplish these things. Private property must be respected. Collier County probably cannot afford to provide the huge amount of parking space necessary to keep up with Collier County's growth. The tourism industry would like to charge an extra cent to pay for more advertising and the same can be done for parking and beach access. It was pointed out that more advertising will create the need for more beach access. Dune crossover can be started as soon as there is a dedicated funding source. Directional signs are necessary to direct people on and off Tigertail. County must begin now to preserve beach access areas so there will be beach access for the future. The possibility of not using beach stickers was discussed along with the undesirability of monitoring where the beach goers come from. It was pointed out that the money for parking will have to come from property taxes or user fees, and it is only fair that parking be paid for by the people using it. Bonding was discussed. $1.3 million dollars can be leveraged for $8 to $10 million dollars and will cover the land purchase amount for the first five items presented earlier. Some operating costs for parking would be covered by parking sticker fee. Keewaydin shuttle should be able to cover most of its own operating costs. Impact fees will be looked into. Tourist tax is potential source of revenue, must isolate funds. Vehicular shuttle will have to be part of the beach access solution as providing the parking spaces necessary will vastly change the landscape of Collier County. Page 10 June 7, 2005 ***** There being no further business for the good of the County, the meeting was adjourned by the order of the chair at 5:05 p.m. Collier County Board of County Commissioners '1uJ-w. ~ Chairman, Fred Coyle ATTEsæ: " '".. .... DWIGHTE~BR.oCK~'.tLERK .... f, ...~-';, ..:;~~",' ;' 1iI..~.... r ": ........J:; . " ·Ö 0£) d)C ,,- . '., ., ( ? ~~st ..s· tó,:ç a 1 run . s .r,.t.ø\ø ". These minutes approved by the Board on ~J1J. ø ,;¡~, :;¡OO), as presented as corrected . ~ or Page 11 ,--."..-..--------.-