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Agenda 11/09/2021 Item #11D (Boat Ramp Parks Management Strategy)11/09/2021 EXECUTIVE SUMMARY Recommendation to approve Staff's recommended Management Strategy for Collier County Boat Ramp Parks outlining short-, intermediate-, and long-term elements and including fee increases to support the strategy implementation. OBJECTIVE: To provide a better balance of recreational and commercial use at Collier County public boat ramp facilities while complying with existing Collier County and City of Marco Island Land Development Codes. CONSIDERATIONS: There are more than 23,000 registered vessels in Collier County while there are only a total of 363 parking spaces for vehicles with trailers at Collier County public boat ramp parks. The table below provides for the current boat ramp availability managed by the Parks and Recreation Division: BOAT RAMP NAME Number of Lanes Number of Public Trailer Parking Spaces Number of Public Vehicle Parking Spaces Caxambas Park 2 56 12 Cocohatchee Boat Ramp 4 29 14 Collier Blvd - 951 Boat Ramp 2 55 58 Goodland Boating Park 2 74 10 Isle of Capri Paddlecraft Park (Non-motorized only) 1 74 13 Port of Islands Boat Ramp 2 4 51 Bayview Park Boat Ramp 2 71 22 As the community continues to grow, the need for public boat ramp availability is imperative to support this recreational activity. Visitation to County boat ramp parks has increased 149% since 2010. Additionally, over the years there has been a rise in the number of commercial users utilizing the fifteen (15) public County boat ramp lanes. There are efforts to develop additional boat ramp capacity in the County; however, current facility limitations create overuse at County boat ramp parks. As a result of increased demand, Collier County Parks and Recreation Division is requesting the Board of County Commissioners (Board) approval of a Boat Ramp Park Management Strategy that consists of short-term, intermediate-term, and long-term recommendations to address boat ramp park oversight, parking, acquisition, and development of additional facilities. The primary purpose of Collier County boat ramp parks is to provide recreational boaters access to local waterways. The zoning varies at all of the boat ramp park locations; however, the boat ramp parks are all Collier County parks. The County has previously deemed foodservice and equipment concession stands to be an accessory use of park facilities. Accessory uses should be incidental and subordinate to the principal use of the park. Current Board policy (Parks and Recreation Fee policy approved July 2018) provides for commercial launch permits for private vendors to operate and launch at County boat ramp locations. County commercial launch permits were initially created and issued to allow the commercial marine industry access to public boat ramps for their sea trials. Over the past decade, the issuance of commercial launch permits to companies providing ecotourism and water-based recreational activities (kayak outfitters, jet ski operators, fishing charters, shelling excursions, etc.) has gradually increased. Today 75% of Collier County commercial launch permits are issued to these types of companies. These businesses 11.D Packet Pg. 132 11/09/2021 contribute to the overall economy and tourism industry in Collier County; however, the current facility limitations of the boat ramp parks cannot sustain the increased commercial activity wh ile maintaining an adequate capacity for recreational boaters. Given the current limitations related to existing boat ramp access for recreational use, Parks and Recreation staff researched this issue with other municipalities that provide this type of saltwater access for recreational boaters. Attached is a summary of current conditions for other municipalities related to the management of boat ramp locations. Recently, with the construction of a community center at Caxambas Park to assist in providing community events and support of local boater education with Coast Guard Auxiliary 92, conditions surrounding the Caxambas ramp have caused extensive congestion and competition between commercial and recreational users. There has also been an increase in commercial use at this facility as ecotourism has grown in popularity at this location. The City of Marco Island, in reviewing the conditions at the park has petitioned County staff to restrict commercial activity at the park due to the current Public Use zoning at this site. While commercial activity has occurred at this location since the establishment of the Park, it can no longer be considered an accessory use. Collier County and the City of Marco Island are sensitive to the impact that restrictions will have on commercial users. Collier County will work with the City to move towards compliance incrementally within a reasonable timeframe. On November 1st, the City of Marco Council heard a presentation from Daniel Smith, Director of Community Affairs with the City on this issue. The consensus of the Council was to continue to work with the County on their recommendations to address the overcrowding at Caxambas Park. They took no action at this time. Like Caxambas Park, the other boat ramp parks throughout Collier County have also seen an increase in commercial use. As a result, the current Collier County Parks and Recreation Division boat ramp management strategy is no longer effective at those locations. Although changes must be made due to the capacity limitations of the current boat ramp parks, sudden changes would be detrimental to the many businesses utilizing these parks. For this reason, at the October 20, 2021 meeting of the Collier County Parks and Recreation Advisory Board (PARAB), staff recommended a Boat Ramp Park Management Strategy that institutes incremental changes over the short-term, intermediate-term, and long-term. These changes address park oversight, parking, and the acquisition and development of additional facilities. The short-term is considered the present through the 2021-22 season. The intermediate-term is considered the 2022-23 season, and the long-term is considered the 2023-24 season and beyond. Below are the components of the Boat Ramp Management Strategy that were unanimously r ecommended for Board approval by the PARAB on October 20, 2021. Boat Ramp Park Management Strategy Short-term Recommendations: 1. Increase Oversight · Staff Caxambas Park Thursday through Sunday with existing staff to manage the parking lot, ramp, and docks · Staff Caxambas Park and Goodland Boating Park full-time with one (1) FTE and contract labor in season - weekends and holidays offseason · Utilize variable message board on Collier Blvd. to advise when Caxambas Park is full and closed 2. Optimize Parking · Prohibit trailers that carry more than four (4) motorized vessels from parking in boat ramp park, allow them to launch and leave · Require commercial permit holders to encourage and promote ridesharing or shuttling of commercial customers to boat ramp parks · Limit the number of commercial launch permits to three (3) per company · Limit the number of total commercial launch permits issued to 150 annually 11.D Packet Pg. 133 11/09/2021 · Prohibit vessels that carry more than six (6) passengers from getting a commercial launch permit · Require commercial permit holders to carry liability insurance indemnifying Collier County · Prohibit commercial launch permit holders from using a County Park as their business address · Allow non-charter commercial permit holders in the marine service and sales industry to obtain 1 commercial launch permit that can be used for multiple trailers · Implement an escalating fee for the second and third commercial launch permit that is issued to one (1) company · Increase launch fees · Increase annual recreational launch permit fee for non-Collier County residents · Implement parking fee for vehicles without a Collier County beach sticker · Allow no new non-Collier County companies to hold commercial launch permits until the total non-Collier County commercial permits held is less than 10% of total permits issued · Seek commercial use and site plan amendment at Caxambas Park · Seek new Conditional Use at Goodland for additional vehicle parking 3. Identify and Develop Additional Facilities · Identify and research possible sites for use as a public boat ramp and/or parking facilities Boat Ramp Park Management Strategy Intermediate-term Recommendations: 1. Increase Oversight · Increase Park Ranger FTEs to allow for additional patrols at all boat ramp parks and staff at Caxambas Park and Goodland Boating Park full-time in season - weekends and holidays offseason 2. Optimize Parking · Re-evaluate regulations to commercial launch permits and adjust regulations as necessary · Explore parking options at other boat ramp parks 3. Identify and Develop Additional Facilities · Research sites for use as a public boat ramp and/or parking facilities and identify funding sources for acquisition and development Boat Ramp Park Management Strategy Long-term Recommendations: 1. Increase Oversight · Install permanent variable message board on Collier Blvd 2. Optimize Parking · Re-evaluate regulations to commercial launch permits and adjust regulations as necessary 3. Identify and Develop Additional Facilities · Acquire and develop sites for use as a public boat ramp and/or parking facilities Staff does not recommend preventing non-Collier County companies from holding commercial launch permits due to legal issues associated with this recommendation; however, Staff recommends approv ing the other PARAB recommended management strategies listed above. Staff also recommends implementing an escalating fee for the second and third commercial launch permits issued to one (1) company (Permit 1 - $250, Permit 2 - $350, and Permit 3 - $450); and making modest market consistent increases of several other fees: beach parking for non -residents ($8 to $10), motorized boat launch ($8 to $10), non-motorized boat launch ($4 to $5), and non-resident boat launch parking (Free to $10). If this plan is approved to move forward, staff will present these recommendations separately at the next available Board meeting for an official fee schedule hearing and approval. 11.D Packet Pg. 134 11/09/2021 FISCAL IMPACT: There were 180 commercial launch permits issued to date in 2021. If the number of permits issued is restricted to 150 annual commercial boat launch permits the revenue would increase from $18,000 to approximately $52,100. The other potential nominal fee increases mentioned would raise sufficient revenue to support ongoing operations. If the Board approves the proposed fee increases, there will be offsetting increases to revenue to fund some additional expenses. Any fee increases will be addressed in a revised Parks and Recreation Fee Policy subject to Board approval at a future meeting. GROWTH MANAGEMENT IMPACT: Providing a better balance of recreational and commercial use at Collier County public boat ramp facilities is consistent with and supports Policy 1.3.2 in the Recreation and Open Space Element of the Collier County Growth Management Plan - Collier County shall continue to ensure that access to beaches, shores and waterways remains available to the public. ADVISORY BOARD RECOMMENDATION: The Collier County Parks and Recreation Advisory Board unanimously recommended approval of the Collier County Boat Ramp Park Management Strategy as outlined above at their October 20, 2021 meeting. LEGAL CONSIDERATIONS: This item is approved as to form and legality and requires a majority vote for Board approval. - SAA RECOMMENDATION: To approve Staff's recommended Management Strategy for Collier County Boat Ramp Parks, and direct staff to develop options within each component for implementation and bring back the proposed fee increases for consideration at a future Board meeting. Prepared By: Barry Williams, Director, Parks and Recreation Division ATTACHMENT(S) 1. (linked) Boat Ramps Presentation (PDF) 2. Florida Municipality Boat Ramp Regulation (PDF) 11.D Packet Pg. 135 11/09/2021 COLLIER COUNTY Board of County Commissioners Item Number: 11.D Doc ID: 20520 Item Summary: Recommendation to approve a Management Strategy for Collier County Boat Ramp Parks to outline short-, intermediate-, and long-term elements and include fee increases to support the strategy implementation. (Barry Williams, Parks and Recreation Director) Meeting Date: 11/09/2021 Prepared by: Title: – Public Services Department Name: Joshua Hammond 11/01/2021 1:37 PM Submitted by: Title: Department Head – Public Services Department Name: Dan Rodriguez 11/01/2021 1:37 PM Approved By: Review: Operations & Veteran Services Kimberley Grant Additional Reviewer Completed 11/01/2021 1:51 PM Public Services Department Melissa Hennig Additional Reviewer Completed 11/01/2021 3:56 PM Parks & Recreation Barry Williams Additional Reviewer Completed 11/02/2021 9:53 AM Public Services Department Todd Henry Public Services Department Completed 11/02/2021 10:23 AM County Attorney's Office Sally Ashkar Additional Reviewer Completed 11/02/2021 4:25 PM County Attorney's Office MaryJo Brock Level 2 Attorney of Record Review Skipped 11/02/2021 1:44 PM Public Services Department Dan Rodriguez PSD Department Head Completed 11/02/2021 4:35 PM Office of Management and Budget Debra Windsor Level 3 OMB Gatekeeper Review Completed 11/03/2021 8:14 AM County Attorney's Office Jeffrey A. Klatzkow Level 3 County Attorney's Office Review Completed 11/03/2021 8:39 AM Growth Management Operations Support Christopher Johnson Additional Reviewer Completed 11/03/2021 10:45 AM County Manager's Office Sean Callahan Level 4 County Manager Review Completed 11/03/2021 4:15 PM Board of County Commissioners Geoffrey Willig Meeting Pending 11/09/2021 9:00 AM 11.D Packet Pg. 136 Collier County Boat Ramp Park Management Strategy Summary Boat Ramp Park Locations Goal Current Boat Ramp Park Management PARAB Recommended Boat Ramp Park Management Strategy Rec eive Board Guidance and Direction 2 Public Boat Ramp Locations BOAT RAMP PARK Number of Lanes Number of Public Parking Spaces for Vehicles with Trailers Number of Public Spaces for Vehicles Bayview Park 2 56 12 Caxambas Park 2 29 14 Cocohatchee River Park 4 55 58 Collier Blvd Boating Park 2 74 10 Goodland Boating Park 2 74 13 Isle of Capri Paddlecraft Park (Non-motorized only) 1 4 51 Port of Islands Marina 2 71 22 •7 Parks •15 Launch Lanes •363 Public Trailer Parking Spaces •180 Public Vehicle Parking Spaces 3 Goal Provide better balance of recreational and commercial use at Collier County public boat ramp facilities while complying with existing Collier County and City of Marco Island Land Development Codes 4 Vehicles without trailers parking in undesignated spaces and trailer spaces. Busy ramps and docks Oversized trailers, multiple vendors, large capacity vessels Full parking lots Current Boat Park Management Visitation Visitation increased 149% from 2010 to 2020 Paid boat launches increased 31% from 2018 to 2020 Increased Out-of-County recreational use since COVID and fishing bans north of Collier County 9 Current Boat Park Management Commercial use Current public boat parks were developed for recreational boater use –primarily trailer parking Initial intent of commercial use at boat parks was to allow commercial marine industry access for their sea trials 76% of commercial launch permits are now issued to companies providing ecotourism and water based recreational activities (kayak outfitters, jet ski operators, fishing charters, shelling excursions, etc.) and numbers have increased 10 Current Boat Park Management Launch Permits 363 total public trailer parking spaces and 180 total public vehicle parking spaces 180 Commercial Launch Permits issued to date in 2021 687 Recreational Launch Permits issued to date in 2021 11 Current Boat Park Management Collier County Park Rangers conduct rounds throughout day -No full-time County staff presence $8 (motorized)/$4 (non-motorized) vessel launch fee No parking fee Unlimited issuance of commercial and recreational launch permits Commercial Launch Permit -$100 annually + launch fees Recreational Launch Permit -$100 (motorized) or $50 (non-motorized) annually –no launch fees 12 Sarasota –non-motorized only Lee –non-holiday M-F at 1 ramp Monroe –no commercial guest parking; limits on weekends and holidays Broward –Case by case regulation Martin –Banned commercial use and was overturned City of Naples –No commercial at ramp; no unauthorized guest parking; $20 landing fee A Way Forward Optimize parking Increase oversight The PARAB recommended Boat Ramp Park Management Strategy is based on the following three components: Identify and develop additional facilities 14 Increase Oversight Short Term (present through 2021-22 season) Intermediate Term (2022-23 season) Long Term (2023 and beyond)15 15 •Staff Caxambas Park Thursday through Sunday with existing staff to manage parking lot, ramp, and docks •Staff Caxambas Park and Goodland Boating Park full-time with 1 FTE and contract labor in season –weekends and holidays off season to manage parking lot, ramp, and docks •Utilize variable message board on Collier Blvd. to advise when Caxambas Park is full and closed •Increase Park Ranger FTEs to allow for additional patrols at all boat ramp parks and staff at Caxambas Park and Goodland Boating Park full-time in season –weekends and holidays off season •Install permanent variable message board on Collier Blvd A Way Forward Optimize parking Increase oversight Identify and develop additional facilities The PARAB recommended Boat Ramp Park Management Strategy is based on the following three components: 16 Optimize Parking Short Term (present through 2021-22 season) Intermediate Term (2022-23 season) Long Term (2023 and beyond) 17 17 •Prohibit trailers that carry more than 4 motorized vessels from parking in boat ramp park, allow them to launch and leave •Require commercial permit holders to encourage and promote ridesharing or shuttling of commercial customers to boat ramp parks •Limit number of commercial launch permits to 3 per company •Limit number of total commercial launch permits issued to 150 annually •Prohibit vessels that carry more than 6 passengers from obtaining a commercial launch permit •Require commercial permit holders to carry liability insurance indemnifying Collier County •Prohibit commercial launch permit holders from using a County Park as their business address •Allow non-charter commercial permit holders in the marine service and sales industry to obtain 1 commercial launch permit that can be used for multiple trailers •Implement an escalating fee for the second and third commercial launch permit that is issued to 1 company •Increase launch fees •Increase annual recreational launch permit fee for non-Collier County residents •Implement parking fee for vehicles without a Collier County beach sticker •Allow no new non-Collier County companies to hold commercial launch permits until the total non-Collier County commercial permits held is less than10% of total permits issued •Seek commercial use and site plan amendment at Caxambas Park •Seek new Conditional Use at Goodland for additional vehicle parking •Re -evaluate regulations to commercial launch permits and adjust regulations as necessary •Explore parking options at other boat ramp parks •Re -evaluate regulations to commercial launch permits and adjust regulations as necessary A Way Forward Optimize parking Increase oversight The PARAB recommended Boat Ramp Park Management Strategy is based on the following three components: Identify and develop additional facilities 18 Identify and Develop Additional Facilities Short Term (present through 2021-22 season) Intermediate Term (2022-23 season) Long Term (2023 and beyond)19 19 •Identify and research possible sites for use as public boat ramp and/or parking facilities •Research sites for use as public boat ramp and/or parking facilities and identify funding sources for acquisition and development •Acquire and develop sites for use as public boat ramp and/or parking facilities Potential additional facilities -Goodland 1.733 Palm Point Dr for overflow parking (requires Parking Exemption) 2.613 E Palm Ave. (requires conditional use or re-zone) 20 Potential additional facilities -Goodland 1.Purchase and develop property on west side of Gober Bridge 2.Develop the two roadside dirt ramps east of Gober Bridge. Reserve them for non-motorized vessels and vessels with less than 90 hp Dirt Ramp Gober Bridge Dirt Ramp Gober Bridge Dirt Ramp 21 Potential additional facilities 1.Continue to acquire and master plan boat trailer parking at Danford and Bay Street corridor near Bayview Park 22 Board Guidance and Recommendation Adopt Staff’s recommended Boat Ramp Park Management Strategy consisting of the following components: Optimizing parking at existing boat ramp parks Increasing County oversight at boat ramp parks Identifying and developing additional facilities Recommend staff evaluate and develop the options within each component for implementation consistent with Board direction 23 Staff’s Boat Ramp Park Management Strategy Short-term Recommendations 1.Increase Oversight: Staff Caxambas Park Thursday through Sunday with existing staff to manage parking lot, ramp, and docks Staff Caxambas Park and Goodland Boating Park full-time with 1 FTE and additional contract labor in season – weekends and holidays off season to manage parking lot, ramp, and docks Utilize variable message board on Collier Blvd. to advise when Caxambas Park is full and closed 2.Optimize Parking: Prohibit trailers that carry more than 4 motorized vessels from parking in boat ramp park, allow them to launch and leave Require commercial permit holders to encourage and promote ridesharing or shuttling of commercial customers to boat ramp parks Limit number of commercial launch permits to 3 per company Limit number of total commercial launch permits issued to 150 annually Prohibit vessels that carry more than 6 passengers from getting a commercial launch permit Require commercial permit holders to carry liability insurance indemnifying Collier County Prohibit commercial launch permit holders from using a County Park as their business address Allow non-charter commercial permit holders in the marine service and sales industry to obtain 1 commercial launch permit that can be used for multiple trailers Implement an escalating fee for the second and third commercial launch permit that is issued to 1 company Increase launch fees Increase annual recreational launch permit fee for non-Collier County residents Implement parking fee for vehicles without a Collier County beach sticker Seek commercial use and site plan amendment at Caxambas Park Seek new Conditional Use at Goodland for additional vehicle parking 3.Identify and Develop Additional Facilities: Identify and research possible sites for use as public boat ramp and/or parking facilities 24 Staff’s Boat Ramp Park Management Strategy Intermediate-term Recommendations 1.Increase Oversight: Increase Park Ranger FTEs to allow for additional patrols at all boat ramp parks and staff at Caxambas Park and Goodland Boating Park full-time in season –weekends and holidays off season 2.Optimize Parking: Re -evaluate regulations to commercial launch permits and adjust regulations as necessary Explore parking options at other boat ramp parks 3.Identify and develop additional facilities: Research sites for use as public boat ramp and/or parking facilities and identify funding sources for acquisition and development 25 Staff’s Boat Ramp Park Management Strategy Long-term Recommendations 1.Increase Oversight: Install permanent variable message board on Collier Blvd 2.Optimize Parking: Re -evaluate regulations to commercial launch permits and adjust regulations as necessary 3.Identify and develop additional facilities: Acquire and develop sites for use as public boat ramp and/or parking facilities 26 Commercial Use of Public Boat Ramps in Florida Coastal Counties/Cities 11.D.b Packet Pg. 137 Attachment: Florida Municipality Boat Ramp Regulation (20520 : Boat Ramp Management Strategy) NO COMMERCIAL USE AT RAMPS • City of Miami - No commercial allowed on ramps - Slips only • City of Naples – Landings and Slips only - 10% of slips for commercial. $20 fee per landing. Commercial Customer parking only allowed when approved. • Levy - No commercial allowed • Miami-Dade - No commercial allowed on ramps - Slips and landings only. No commercial customer parking- $100-$200 fee per landing • Palm Beach - No commercial use (not an issue) • Santa Rosa - No commercial allowed SOME REGULATION • Brevard - Regulated • Broward - Regulated on a case-by-case basis • City of Crystal River - No major issues - No commercial motorized launch, but 5 vendors for kayaks that rent space through bid process - $1,500/month or $750/month • City of Gulf Breeze - Regulated • Lee - Commercial allowed at 1 ramp on non-holidays M-F • Monroe - No commercial customer parking on-site - limits on weekends and holidays • Sarasota - Non-motorized commercial only • Walton - Regulated on a case-by-case basis - must have Board approval NO REGULATION • Charlotte - No restrictions, but looking into it • Citrus - No restrictions • City of Jacksonville - No restrictions • Manatee - No restrictions • Martin - No restrictions; banned commercial use but was overturned by Board • Nassau - No restrictions, but looking into it • Pasco - No restrictions • Saint Johns - No restrictions, but looking into it • Taylor - No restrictions – but no commercial use… maybe one kayak company running commercial • Volusia - No restrictions • Wakulla - No restrictions - only commercial use is charter fishing boats. Parking is becoming a problem 11.D.b Packet Pg. 138 Attachment: Florida Municipality Boat Ramp Regulation (20520 : Boat Ramp Management Strategy)