Agenda 04/25/2023 Item #17E (Resolution - To consider the propose an amendment to the Growth Management Plan)04/25/2023
EXECUTIVE SUMMARY
A Resolution of the Board of County Commissioners proposing an amendment to the Collier County Growth
Management Plan, Ordinance 89-05, as amended, specifically amending the Future Land Use Element and
Future Land Use Map and Map Series to add the US 41 East Overlay to allow certain economic development
uses within the Corridor segments; and, allow increased height and density, and certain economic
development uses in Regional Centers and Community Centers through incentives, and amending the
Transportation Element and maps to expand the South US 41 Transportation Concurrency Exception Area,
and furthermore directing transmittal of the proposed amendment to the Florida Department of Economic
Opportunity. [PL20230000930]
_____________________________________________________________________________________
OBJECTIVE: For the Board of County Commissioners (Board) to review and consider approving the proposed
amendments to:
1. The Future Land Use Element and Future Land Use Map and Map Series, specifically to establish a new US 41
East Overlay for a segment of US 41 East, from approximately Palm Drive (road separating Walmart from
Naples Towne Center) to Greenway Road (the Urban-Agricultural/Rural boundary) lying about 3.4 road miles
east of Collier Boulevard, which will provide for increased density and height for vertical mixed -use
developments within portions of the Overlay, and allow certain economic development uses throughout the
Overlay; and,
2. The Transportation Element to create a new map (TR-4.1) depicting the expansion of the South US 41
Transportation Concurrency Exception Area (TCEA) from its present terminus at the Rattlesnake-Hammock
Road and Thomasson Lane intersections with US 41 East, to the southeast along US 41 East to t he east side of
Mixed Use Activity Center #18 at the intersection of US 41 East and Collier Boulevard; and, update the tables
on the existing TCEA Map (TR-4) to reflect current conditions; and, amend Policy 5.4 of the Transportation
Element (TE) to provide a reference to the new TCEA map (TR-4.1).
The proposed GMP amendments are reflected in Exhibit “A” text and maps accompanying the GMP Amendment
Transmittal Resolution.
CONSIDERATIONS: On February 14, 2017, the Board of County Commissioners (Board) directed staff to
engage the East Naples community in a public planning process to identify and incentivize desired land uses and
development along the US 41 East (Tamiami Trail) corridor. On April 24, 2018, staff and their consultant team
from Johnson Engineering, Inc. presented the US 41 Corridor Study (Corridor Study) to the Board. The Corridor
Study included four meetings to engage the public and solicit community input and resulted in recommendations
that included: a community-based branding project, land use preferences, strategy to limit undesirable uses,
landscaping preferences, and transportation needs.
Following the Corridor Study, staff received Board direction to prepare a community development plan for the East
Naples community that would establish a vision for the area to guide future development and redevelopment. In
January 2020, the consulting firm of Tindale Oliver contracted with the Board to prepare the East Naples
Community Development Plan (ENCDP). The ENCDP was accepted by the Board in October 2020. The
development of the ENCDP included an extensive public input process culminating in a community plan that
guides land uses and development, promotes various transportation modes, highlights the community’s
assets/improvements, provides follow-up efforts to address topics of community interest, and provides steps on
implementation.
The ENCDP prioritizes the development and implementation of a zoning overlay along the US 41 East corridor
(Tamiami Trail East), specifically providing for its establishment within 5-years from the date of acceptance by the
Board. An objective of the zoning overlay is to enhance the community’s sense of place by providing guidance on
future development and redevelopment projects that will expand employment opportunities, leisure activities,
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04/25/2023
dining, and shopping to meet the growing needs of the community.
In 2021, the County contracted with Johnson Engineering, Inc. to assist with preparing a zoning overlay (US 41
EZO) that implements the ENCDP. The community has been actively engaged with staff and the County’s
consultant in developing the US 41 EZO for the segment of US 41 East that generally begins at Palm Drive (near
the Collier County government center) and extends to the east side of Port of the Islands, e xclusive of that segment
of US 41 within the Rural Fringe Mixed Use District. During the months between January and November 2022, the
project team conducted staff team meetings, and stakeholder and community meetings to solicit input on the
development and design standards for residential, mixed-use, and commercial development, and spacing criteria for
commercial uses, in part, to address the undesirable uses identified in the ENCDP.
Certain provisions of the proposed US 41 EZO necessitate the establishment of the subject US 41 East Overlay in
the GMP and related TCEA expansion.
FISCAL IMPACT: The costs associated with processing and advertising the proposed GMP amendment have
been allocated within Planning Services Fund (131), Current Planning Fund Center (138326).
GROWTH MANAGEMENT IMPACT: Approval of the proposed amendment by the Board for transmittal to the
Florida Department of Economic Opportunity and other statutorily required review agencies will commence the
Department’s thirty (30) day review process and ultimately return the amendments to the CCPC and the Board for
Adoption hearings.
STAFF RECOMMENDATION TO THE COLLIER COUNTY PLANNING COMMISSION: The Collier
County Planning Commission, acting as the Land Planning Agency and the Environmental Advisory Council,
forward the proposed US 41 East Overlay and Transportation Concurrency Exception Area expansion Growth
Management Plan amendments to the Board of County Commissioners with a recommendation to Transmit to the
Florida Department of Economic Opportunity and other statutorily required review agencies.
COLLIER COUNTY PLANNING COMMISSION (CCPC) RECOMMENDATION: The CCPC reviewed
and discussed the proposed amendments at their March 16, 2023, meeting. The CCPC recommended that the Board
approve the amendments for transmittal, per staff recommendation (vote: 6/0). There were no registered speakers.
LEGAL CONSIDERATIONS: The Board should consider the following criteria in making its decision: “plan
amendments shall be based on relevant and appropriate data and an analysis by the local government that may
include but not be limited to, surveys, studies, community goals and vision, and other data available at the time of
adoption of the plan amendment. To be based on data means to react to it in an appropriate way and to the extent,
necessary indicated by the data available on that particular subject at the time of adoption of the plan or plan
amendment at issue.” s. 163.3177(1)(f), FS. In addition, s. 163.3177(6)(a)2, FS provides that FLUE plan
amendments shall be based on surveys, studies, and data regarding the area, as applicable including:
a. The amount of land required to accommodate anticipated growth.
b. The projected permanent and seasonal population of the area.
c. The character of undeveloped land.
d. The availability of water supplies, public facilities, and services.
e. The need for redevelopment, including the renewal of blighted areas and the elimination of non-
conforming uses which are inconsistent with the character of the community.
f. The compatibility of uses on lands adjacent to or closely proximate to military installations.
g. The compatibility of uses on lands adjacent to an airport as defined in s. 330.35 and consistent with s.
333.02.
h. The need to modify land uses and development patterns with antiquated subdivisions.
i. The discouragement of urban sprawl.
j. The need for job creation, capital investment, and economic development that will strengthen and
diversify the community’s economy.
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And FLUE map amendments shall also be based upon the following analysis per Section 163.3177(6)(a)8.:
a. An analysis of the availability of facilities and services.
b. An analysis of the suitability of the plan amendment for its proposed use considering the character of
the undeveloped land, soils, topography, natural resources, and historic resources on site.
c. An analysis of the minimum amount of land needed to achieve the goals and requirements of this
section.
This item is approved as to form and legality and requires a majority vote for Board approval because this is a
Transmittal hearing. [HFAC]
RECOMMENDATION: To approve the proposed amendments for transmittal to the DEO and other statutorily
required agencies, as recommended by the CCPC.
Prepared by: Michele Mosca, AICP, Planner III, Growth Management Community Development Department,
Zoning Division
ATTACHMENT(S)
1. CCPC Staff Report_US 41 Overlay-TCEA expansion GMPA.FNL (PDF)
2. Resolution & Exhibit A - 021323(2) (PDF)
3. Transportation_Plan_Review_Summary_2-11-2022 (PDF)
4. Transportation_Analysis_Summary_11-29-2022 (PDF)
5. [Linked] ENCDP Final Plan (PDF)
6. legal ad - agenda ID 25016 (PDF)
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COLLIER COUNTY
Board of County Commissioners
Item Number: 17.E
Doc ID: 25016
Item Summary: A Resolution of the Board of County Commissioners proposing an amendment to the Collier
County Growth Management Plan, Ordinance 89-05, as amended, specifically amending the Future Land Use
Element and Future Land Use Map and Map Series to add the US 41 East Overlay to allow certain economic
development uses within the Corridor segments; and, allow increased height and density, and certain economic
development uses in Regional Centers and Community Centers through incentives, and amending the
Transportation Element and maps to expand the South US 41 Transportation Concurrency Exception Area, and
furthermore directing transmittal of the proposed amendment to the Florida Department of Economic Opportunity.
[PL20230000930]
Meeting Date: 04/25/2023
Prepared by:
Title: Planner, Principal – Zoning
Name: Michele Mosca
03/22/2023 1:17 PM
Submitted by:
Title: Zoning Director – Zoning
Name: Mike Bosi
03/22/2023 1:17 PM
Approved By:
Review:
Growth Management Department Diane Lynch Growth Management Department Completed 03/22/2023 4:53 PM
Zoning James Sabo Additional Reviewer Completed 03/29/2023 2:32 PM
Zoning Mike Bosi Division Director Completed 03/31/2023 5:03 PM
Growth Management Department James C French Growth Management Completed 04/04/2023 12:00 PM
County Attorney's Office Heidi Ashton-Cicko Level 2 Attorney of Record Review Completed 04/07/2023 3:22 PM
Office of Management and Budget Debra Windsor Level 3 OMB Gatekeeper Review Completed 04/10/2023 9:16 AM
County Attorney's Office Jeffrey A. Klatzkow Level 3 County Attorney's Office Review Completed 04/13/2023 9:21 AM
Office of Management and Budget Laura Zautcke Additional Reviewer Completed 04/14/2023 9:18 AM
County Manager's Office Amy Patterson Level 4 County Manager Review Completed 04/19/2023 4:56 PM
Board of County Commissioners Geoffrey Willig Meeting Pending 04/25/2023 9:00 AM
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STAFF REPORT
COLLIER COUNTY PLANNING COMMISSION
TO: COLLIER COUNTY PLANNING COMMISSION
FROM: GROWTH MANAGEMENT COMMUNITY DEVELOPMENT DEPARTMENT,
ZONING DIVISION, COMPREHENSIVE PLANNING SECTION
HEARING DATE: March 16, 2023
RE: PETITION NO. PL20230000930, STAFF-PROPOSED AMENDMENTS TO THE
FUTURE LAND USE ELEMENT AND FUTURE LAND USE MAP AND MAP
SERIES, AND MAP TR-4, SOUTH US 41 TRANSPORTATION CONCURRENCY
EXCEPTION AREA, IN THE TRANSPORTATION ELEMENT OF THE COLLIER
COUNTY GROWTH MANAGEMENT PLAN. [TRANSMITTAL HEARING]
___________________________________________________________________________________
REQUESTED ACTION:
This proposal consists of a single staff-initiated Growth Management Plan (GMP) amendment petition
comprised of two components, as follows:
1. Amend the Future Land Use Element (FLUE) and Future Land Use Map (FLUM) and Map Series
to establish a new US 41 East Overlay for a segment of US 41 East, from approximately Palm
Drive (road separating Walmart from Naples Towne Center) to Greenway Road (the Urban-
Agricultural/Rural boundary) lying about 3.4 road miles east of Collier Blvd. The Overlay will
allow increased density for vertical mixed-use developments within portions of the Overlay and
will allow certain economic development uses throughout the Overlay.
2. Create a new map (TR-4.1) depicting the expansion of the Transportation Concurrency Exception
Area (TCEA) from its present terminus at the Rattlesnake-Hammock Road and Thomasson Lane
intersections with US 41 East, to the southeast along US 41 East to the east side of Mixed Use
Activity Center #18 at the intersection of US 41 East and Collier Blvd.; update the tables on the
existing TCEA Map (TR-4) to reflect current conditions; and, amend Policy 5.4 of the
Transportation Element (TE) to provide a reference to the new TCEA map (TR-4.1).
The proposed GMP amendments are reflected in Exhibit “A” text and maps accompanying the GMP
Amendment Transmittal Resolution.
BACKGROUND:
On February 14, 2017, the Board of County Commissioners (Board) directed staff to engage the East
Naples community in a public planning process to identify and incentivize desired land uses and
development along the US 41 East (Tamiami Trail) corridor. On April 24, 2018, staff and their consultant
team from Johnson Engineering, Inc. presented the US 41 Corridor Study (Corridor Study) to the Board.
The Corridor Study included four meetings to engage the public and solicit community input and resulted
in recommendations that included: a community-based branding project, land use preferences, a
strategy to limit undesirable uses, landscaping preferences, and transportation needs.
Following the Corridor Study, staff received Board direction to prepare a community development plan
for the East Naples community that would establish a vision for the area to guide future development
and redevelopment. In January 2020, the consulting firm of Tindale Oliver contracted with the Board to
17.E.1
Packet Pg. 2457 Attachment: CCPC Staff Report_US 41 Overlay-TCEA expansion GMPA.FNL (25016 : US 41 East Overlay and Transportation Concurrency
‒ 2 ‒
prepare the East Naples Community Development Plan. In October 2020, the East Naples Community
Development Plan (ENCDP) was accepted by the Board. The development of the ENCDP included an
extensive public input process culminating in a community plan that guides land uses and development,
promotes various transportation modes, highlights the community’s assets/improvements, provides
follow-up efforts to address topics of community interest, and provides steps on implementation.
The ENCDP prioritizes the development and implementation of a zoning overlay along the US 41 East
corridor (Tamiami Trail East), specifically providing for its establishment within 5-years from the date of
acceptance by the Board. An objective of the zoning overlay is to enhance the community’s sense of
place by providing guidance on future development and redevelopment projects that will expand
employment opportunities, leisure activities, dining, and shopping to meet the growing needs of the
community.
In 2021, the County contracted with Johnson Engineering, Inc. to assist with preparing a zoning overlay
(US 41 EZO) that implements the ENCDP. The community has been actively engaged with staff and the
County’s consultant in developing the US 41 EZO for the segment of US 41 East that generally begins
at Palm Drive (near the Collier County government center) and extends to the east side of Port of the
Islands, exclusive of that segment of US 41 within the Rural Fringe Mixed Use District. During the
months between January and November 2022, the project team conducted staff team meetings, and
stakeholder and community meetings to solicit input on the development and design standards for
residential, mixed-use, and commercial development, and spacing criteria for commercial uses, in part,
to address the undesirable uses identified in the ENCDP.
STAFF ANALYSIS:
The purpose of this Growth Management Plan (GMP) amendment is to create a FLUE Overlay to
provide for increased density and economic development uses along the US 41 East corridor as
proposed in the East Naples Community Development Plan (ENCDP). The US 41 East corridor is a
Florida Department of Transportation facility which currently has constrained segments. A portion of the
US 41 East corridor is within the South Transportation Concurrency Exception Area (TCEA), which
excepts properties from link-by-link concurrency. The increased development opportunities allowed by
the Overlay could result in increased transportation impacts, most significantly on certain segments of
US 41. Given the current modest remaining capacity on US 41 in this area, expansion of the TCEA is
beneficial to the transportation network.
Future Land Use Element/Future Land Use Map and Series
The proposed US 41 East Overlay will implement, in part, the ENCDP. At the adoption hearings for
these GMP amendments, staff intends to include the companion Land Development Code (LDC)
amendments that will establish an implementing zoning overlay.
The Overlay map in the support materials identifies seven different areas where increased density is
allowed within mixed-use developments (commercial and residential multi-family) - three Regional
Centers and four Community Centers. Density increases for mixed-use developments within these
Centers would be allowed as follows: Regional Centers, up to 20 dwelling units per acre, and
Community Centers, up to 16 dwelling units per acre. Landowners would have the option of developing
a mixed-use project as provided in this Overlay or developing per the underlying future land use
designation and applicable FLUE policies. Regional Centers lie within the Mixed-Use Activity Center
Subdistrict (Activity Centers 16, 17, and 18 as identified on the Future Land Use Map series).
Certain economic development uses are allowed throughout the Overlay. As with the density increase
for mixed-use development, the development of economic development uses is optional; landowners
can choose to develop their property per the underlying future land use designation and applicable
FLUE policies.
17.E.1
Packet Pg. 2458 Attachment: CCPC Staff Report_US 41 Overlay-TCEA expansion GMPA.FNL (25016 : US 41 East Overlay and Transportation Concurrency
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The table below identifies the present and proposed density allowances within the Overlay’s Community
and Regional Centers. Because the underlying future land use designations vary, the presently eligible
densities vary.
Overlay sub-area Present eligible density Proposed eligible density
Community Centers 3/4/16 DU/A 16 DU/A
Regional Centers 4/16 DU/A 20 DU/A
DU/A = dwelling units per acre
The Overlay would allow a maximum increase of 3,463 dwelling units; this number reflects 100%
participation for all eligible properties and at the maximum allowed density. Staff is of the opinion that the
actual participation, even over an extended number of years, will be far less; this is based on the limited
number of mixed-use projects built to date despite the County allowing and encouraging such
developments since at least 1989. Staff anticipates a participation rate of up to 25% to be more likely to
occur in this area, resulting in a maximum increase of 866 dwelling units.
Transportation Element/Transportation Concurrency Exception Area (TCEA) – TR-4 and TR-4.1
Maps:
The proposed FLUE Overlay (and Zoning Overlay) is designed to enhance the area by increasing
economic development opportunities, improving the variety of housing options, and creating walkable,
vibrant areas supported by a network of services. The proposed increased densities and uses align with
the purpose of the TCEA by potentially reducing trips on the US 41 East corridor.
Transportation Planning staff provided the following information to describe the TCEA and its purpose.
“Transportation Concurrency Exception Areas (TCEA) is an alternative concurrency management
system authorized by Florida Statutes to regulate increased traffic volume created by new development
while also promoting affordable housing and redevelopment programs as well as development policies
designed to control urban sprawl. These systems are used to manage growth-related impacts on
transportation facilities on an area-wide basis rather than on a link-by-link basis.
A TCEA is designed to reduce the adverse impact transportation concurrency may have on urban
sprawl control policies and redevelopment. Collier County has one TCEA called the South US 41
TCEA. Development located within the boundaries of the South US 41 TCEA is exempt from
transportation concurrency requirements so long as impacts to the transportation system are mitigated
using Transportation Demand Management strategies enumerated in the Policy 5.5 of the
Transportation Element.
Commercial developments within the South US 41 TCEA that choose to obtain an exception from
concurrency requirements for transportation will provide certification to the County transportation
planning agency that at least four (4) of the following Transportation Demand Management (TDM)
strategies will be utilized:
a) Preferential parking for carpools and vanpools that is expected to increase the average vehicle
occupancy for work trips generated by the development.
b) Parking charge that is expected to increase the average vehicle occupancy for work trips
generated by the development and/or increase transit ridership.
c) Cash subsidy that is expected to increase the average vehicle occupancy for work trips
generated by the development and/or increase transit ridership.
d) Flexible work schedules that are expected to reduce peak-hour automobile work trips generated
by the development.
e) Compressed workweek that would be expected to reduce vehicle miles of travel and peak hour
work trips generated by the development.
f) Telecommuting that would be expected to reduce the vehicle miles of travel and peak hour work
trips generated by the development.
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Packet Pg. 2459 Attachment: CCPC Staff Report_US 41 Overlay-TCEA expansion GMPA.FNL (25016 : US 41 East Overlay and Transportation Concurrency
‒ 4 ‒
g) Transit subsidy that would be expected to reduce auto trips generated by the development and
increase transit ridership.
h) Bicycle and pedestrian facilities that would be expected to reduce vehicle miles of travel and
automobile work trips generated by the development.
i) Including residential units as a portion of a commercial project that would be expected to reduce
vehicle miles of travel.
Residential developments within the South US 41 TCEA that choose to obtain an exception from
concurrency requirements for transportation shall provide documentation to the County transportation
planning agency that at least three (3) of the following Transportation Demand Management (TDM)
strategies will be utilized:
a) Including neighborhood commercial uses within a residential project.
b) Providing transit shelters within the development (in coordination with Collier Area Transit).
c) Providing bicycle and pedestrian facilities with connections to adjacent commercial properties.
d) Vehicular access to adjacent commercial properties with shared commercial and residential
parking.”
Required Data and Analysis in Support of the Changes to the TCEA:
Chapter 163, Part II, Florida Statutes, contains the statutory provisions pertaining to comprehensive
plans (GMP), including the requirement for local governments to adopt a comprehensive plan, the
elements required to be included in a comprehensive plan, and the procedures and requirements to
amend the comprehensive plan. The statutory provisions relevant to most GMP amendments are
identified later in this Staff Report (“Criteria for GMP Amendments in Florida Statutes”). Additionally,
Chapter 163.3180(5)(h)1. a., Florida Statutes, provides that the County is to “Consult with the
Department of Transportation when proposed plan amendments affect facilities on the strategic
intermodal system” (SIS). Interstate 75 (I-75) is the closest SIS facility to the proposed US 41 East
Overlay and TCEA expansion area; the other SIS facilities are in the east/central part of the county
(SR29 and SR82). The County had their transportation consultant perform an evaluation of the traffic
impacts to I-75 caused by the allowed density increase under the maximum utilization scenario - the
100% density increase (3,463 DUs). The results indicate the impacts to I-75 are negligible (please see
the below table).
[REMAINDER OF PAGE INTENTIONALLY LEFT BLANK]
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Packet Pg. 2460 Attachment: CCPC Staff Report_US 41 Overlay-TCEA expansion GMPA.FNL (25016 : US 41 East Overlay and Transportation Concurrency
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AADT = Average Annual Daily Trips
However, the evaluation indicated there will be impacts on portions of US 41 East. Collier County
completed a [D1RPM 2045] model run using the maximum number of multifamily dwelling units allowed
by the Overlay. The model estimated that the most significant impacts (increases of up to 6.67% of the
original volume) will be along US 41 directly. For this reason, Collier County recommends expanding
the TCEA from its southeasterly terminus, approximately south of Rattlesnake-Hammock Road (CR
864), to southeast of Collier Blvd. (CR/SR 951). Consistent with the TCEA, the new Overlay is intended
to promote redevelopment, affordable housing, and infill development. The Transportation Demand
Management strategies required by the TCEA coincide with the goals and vision of the Overlay and
provide a systematic approach to addressing the congestion in the area.
The existing TCEA was adopted in 2004 along with two Transportation Concurrency Management Areas
(TCMA). As a significant portion of the [at that time, proposed] TCEA was within the Urban Infill and
Redevelopment Area aka Bayshore/Gateway Triangle Redevelopment Overlay (B/GTRO), certain
statutory and State Rule 9J-5 provisions were applicable pertaining to the amount of vacant land
allowed, redevelopment strategies, etc. Thus, two tables were included on the TCEA map, one
pertaining to vacant lands and one pertaining to land use categories. For the existing TCEA, staff
updated the land use and vacant parcel tables using 2022 data from the Collier County Property
Appraiser’s Office; please see below.
Existing TCEA, Land Use Table (2022 data)
Public Commercia
l
Residentia
l
Total Acres
93.07 453.52 429.50 976.09
9.53% 46.46% 44.00% 100%
Note: Percent figures do not sum to 100% due to rounding.
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Packet Pg. 2461 Attachment: CCPC Staff Report_US 41 Overlay-TCEA expansion GMPA.FNL (25016 : US 41 East Overlay and Transportation Concurrency
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Existing TCEA, Vacant Parcel Table (2022 data)
ALL
PARCELS
Count: 1725 (100%) Sum of acres = 976.09
(100%)
VACANT Count: 234 (13.6%) Sum of acres = 105.55
(10.8%)
NON-
VACANT
Count: 1491 (86.4%) Sum of acres = 870.54
(89.2%)
Similarly, for the TCEA expansion area, staff created land use and vacant parcel tables using 2022 data
from the Collier County Property Appraiser’s Office; please see below. However, none of the expanded
TCEA lies within the Urban Infill and Redevelopment Area (B/GTRO), and statutory requirements are
less than they were in 2004.
TCEA Expansion, Land Use Table
Public Commercia
l
Residentia
l
Total Acres
406.42 626.73 181.08 1214.23
33.47% 51.62% 14.91% 100%
TCEA Expansion, Vacant Parcel Table
ALL
PARCELS
Count: 640 (100%) Sum of acres = 1214.23
(100%)
VACANT Count: 106 (16.6%) Sum of acres = 171.39
(14.1%)
NON-
VACANT
Count: 534 (83.4%) Sum of acres = 1042.84
(85.9%)
Additionally, the County’s sub-consultant for the preparation of the US 41 East Zoning Overlay, Fehr
Peers, prepared a transportation analysis of the potential vertical mixed-use development on two
[sample] parcels along the US 41 East corridor: Lowe’s Plaza in the southwest quadrant of US 41 East
and CR/SR 951, and St. Andrews Square in the northwest quadrant of US 41 East and St.
Andrews Blvd. Both parcels are developed with commercial centers. The analysis considered partial
redevelopment with vertical mixed-use (commercial and residential), which is one of the desired
outcomes of the East Naples Community Development Plan and is one of the strategies to lessen
transportation impacts. [see attachments: Transportation Analysis Summary 11-29-22 (Fehr Peers
Memorandum dated Nov. 29, 2022), and Transportation Plan Review Summary 2-11-22 (Fehr Peers
Memorandum dated Feb. 11, 2022)]
Environmental Impacts:
These amendments increase the allowable density and increase the intensity of commercial uses
allowed for certain properties along the US41 East corridor, all of which are designated Urban and most
of which are already developed or cleared of native vegetation. Redevelopment or development of these
properties is subject to the environmental protection standards in the Conservation and Coastal
Management Element and LDC, as applicable.
Public Facilities Impacts:
Based upon review of the most recent AUIR, Annual Update, and Inventory Report, there are adequate
public facilities to accommodate the allowable density increase (and additional commercial uses)
proposed by this amendment (water, wastewater, solid waste, drainage, etc.). Transportation impacts
have been previously addressed.
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Packet Pg. 2462 Attachment: CCPC Staff Report_US 41 Overlay-TCEA expansion GMPA.FNL (25016 : US 41 East Overlay and Transportation Concurrency
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Criteria for GMP Amendments in Florida Statutes
Data and analysis requirements for comprehensive plans and plan amendments are noted in Chapter
163, F.S., specifically as listed below.
Section 163.3177(1)(f), Florida Statutes:
(f) All mandatory and optional elements of the comprehensive plan and plan amendments shall be
based upon relevant and appropriate data and an analysis by the local government that may
include, but not be limited to, surveys, studies, community goals and vision, and other data
available at the time of adoption of the comprehensive plan or plan amendment. To be based on
data means to react to it in an appropriate way and to the extent, necessary indicated by the data
available on that particular subject at the time of adoption of the plan or plan amendment at
issue.
1. Surveys, studies, and data utilized in the preparation of the comprehensive plan may not be
deemed a part of the comprehensive plan unless adopted as a part of it. Copies of such
studies, surveys, data, and supporting documents for proposed plans and plan amendments
shall be made available for public inspection, and copies of such plans shall be made
available to the public upon payment of reasonable charges for reproduction. Support data or
summaries are not subject to the compliance review process, but the comprehensive plan
must be clearly based on appropriate data. Support data or summaries may be used to aid in
the determination of compliance and consistency.
2. Data must be taken from professionally accepted sources. The application of a methodology
utilized in data collection or whether a particular methodology is professionally accepted may
be evaluated. However, the evaluation may not include whether one accepted methodology
is better than another. Original data collection by local governments is not required. However,
local governments may use original data so long as methodologies are professionally
accepted.
3. The comprehensive plan shall be based upon permanent and seasonal population estimates
and projections, which shall either be those published by the Office of Economic and
Demographic Research or generated by the local government based upon a professionally
acceptable methodology. The plan must be based on at least the minimum amount of land
required to accommodate the medium projections as published by the Office of Economic
and Demographic Research for at least a 10-year planning period unless otherwise limited
under s. 380.05, including related rules of the Administration Commission. Absent physical
limitations on population growth, population projections for each municipality, and the
unincorporated area within a county must, at a minimum, be reflective of each area’s
proportional share of the total county population and the total county population growth.
Section 163.3177(6)(a)2.:
2. The future land use plan and plan amendments shall be based on surveys, studies, and data
regarding the area, as applicable, including:
a) The amount of land required to accommodate anticipated growth.
b) The projected permanent and seasonal population of the area.
c) The character of undeveloped land.
d) The availability of water supplies, public facilities, and services.
e) The need for redevelopment, including the renewal of blighted areas and the elimination
of nonconforming uses which are inconsistent with the character of the community.
f) The compatibility of uses on lands adjacent to or closely proximate to military installations.
g) The compatibility of uses on lands adjacent to an airport as defined in s. 330.35
and consistent with s. 333.02.
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‒ 8 ‒
h) The discouragement of urban sprawl.
i) The need for job creation, capital investment, and economic development that will
strengthen and diversify the community’s economy.
j) The need to modify land uses and development patterns within antiquated subdivisions.
Section 163.3177(6)(a)8., Florida Statutes:
(a) A future land use plan element designating proposed future general distribution, location, and
extent of the uses of land for residential uses, commercial uses, industry, agriculture, recreation,
conservation, education, public facilities, and other categories of the public and private uses of
land. The approximate acreage and the general range of density or intensity of use shall be
provided for the gross land area included in each existing land use category. The element shall
establish the long-term end toward which land use programs and activities are ultimately
directed.
8. Future land use map amendments shall be based upon the following analyses:
a) An analysis of the availability of facilities and services.
b) An analysis of the suitability of the plan amendment for its proposed use considering the
character of the undeveloped land, soils, topography, natural resources, and historic
resources on site.
c) An analysis of the minimum amount of land needed to achieve the goals and
requirements of this section.
Also, the State land planning agency has historically recognized the consideration of community desires
(e.g., if the community has an articulated vision for an area as to the type of development desired, such
as within a Community Redevelopment Area), or existing incompatibilities (e.g., presently allowed uses
would be incompatible with surrounding uses and conditions).
LEGAL CONSIDERATIONS:
This Staff Report was reviewed by the County Attorney’s Office on February 17, 2023. The criteria for
GMP amendments to the Future Land Use Element and map series are in Sections 163.3177(1)(f) and
163.3177(6)(a)2 and 163.3177(6)(a)8, Florida Statutes. [HFAC]
STAFF RECOMMENDATION:
Staff recommends that the Collier County Planning Commission forward Petition PL20230000930 to the
Board of County Commissioners with a recommendation to approve for transmittal to the Florida
Department of Economic Opportunity and other statutorily required review agencies.
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PL20230000930
Exhibit A
FUTURE LAND USE ELEMENT
(As amended through Ordinance No. 2022-28, adopted June 28, 2022)
GOALS, OBJECTIVES AND POLICIES
GOAL: TO GUIDE LAND USE DECISION-MAKING SO AS TO ACHIEVE AND
MAINTAIN A HIGH QUALITY NATURAL AND HUMAN ENVIRONMENT WITH A
WELL PLANNED MIX OF COMPATIBLE LAND USES WHICH PROMOTE THE
PUBLIC'S HEALTH, SAFETY AND WELFARE CONSISTENT WITH STATE
PLANNING REQUIREMENTS AND LOCAL DESIRES.
OBJECTIVE 1:
Promote well planned land uses consistent with Future Land Use Designations, Districts and
Subdistricts and the Future Land Use Map to ensure compatibility between the natural and
human environments.
*** *** *** *** *** *** *** *** *** *** *** *** *** ***
Policy 1.9: [re-lettered to reflect merger of Ordinance No. 2002-32 and 2002-54]
Overlays and Special Features shall include:
A. Area of Critical State Concern Overlay
B. North Belle Meade Overlay
C. NC Square Mixed-Use Overlay
D. Natural Resource Protection Area Overlays
E. Rural Lands Stewardship Area Overlay
F. Airport Noise Area Overlay
G. Bayshore/Gateway Triangle Redevelopment Overlay
H. Urban-Rural Fringe Transition Zone Overlay
I. Coastal High Hazard Area Boundary
J. Ventana Pointe Residential Overlay
K. US 41 East Overlay
L. K. Incorporated Areas
*** *** *** *** *** *** *** *** *** *** *** *** *** ***
V. OVERLAYS AND SPECIAL FEATURES
*** *** *** *** *** *** *** *** *** *** *** *** *** ***
K. US 41 East Overlay
This Overlay is located along portions of the US 41 East corridor from Palm Drive to
Greenway Road. It is comprised of three Regional Centers, four Community Centers, and
multiple Corridor segments between those Centers, all of which that are depicted on the
Future Land Use Map and US 41 East Overlay Maps. The Overlay is intended to allow
mixed use development and economic development and to encourage a pedestrian/transit-
friendly development pattern. The Regional Centers allow medium to high intensity
mixed use development, commercial, residential development, and certain economic
development uses, and are located within Mixed Use Activity Center numbers 16, 17, and
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18. The Community Centers allow moderate to low intensity mixed use development,
commercial, residential development, hotel/motel at a maximum density of 26 units per
acre, and certain economic development uses. The Corridor segments allow low density
residential development, commercial development permitted by the underlying zoning
districts, and certain economic development uses. A zoning overlay shall be established
within one year of the effective date of this Overlay and include Regional Center,
Community Center, and Corridor Subdistricts. The zoning overlay will provide for
allowed uses, design standards, and increased density and/or height for projects in the
Regional Centers and Community Centers that include certain design elements such as
vertical mixed use, green building standards, and low impact development standards.
Mixed use development within the Regional Centers and Community Centers of this
Overlay will be eligible for increased density and/or height when utilizing incentives
outlined in the zoning overlay, and is subject to the following limitations:
1. Mixed use development within the Regional Centers is eligible for up to twenty
(20) dwelling units per acre when utilizing incentives outlined in the zoning
overlay, and is not subject to the density rating system.
2. Mixed use development within the Community Centers is eligible for up to
sixteen (16) dwelling units per acre when utilizing incentives outlined in the
zoning overlay, and is not subject to the density rating system.
3. For a mixed use development pursuant to paragraph 1. or 2. above, only multi-
family dwelling units are allowed.
4. The maximum height increase for properties within the Regional and Community
Centers shall be limited to twenty (20) feet above that permitted by the underlying
zoning district.
Residential-only development, mixed use development not utilizing incentives outlined in
the zoning overlay, and commercial-only development other than certain economic
development uses, shall be in accordance with the underlying future land use designation
and applicable FLUE policies.
L. K. Incorporated Areas
*** *** *** *** *** *** *** *** *** *** *** *** *** ***
FUTURE LAND USE MAP SERIES
Future Land Use Map
Activity Center Index Map
Mixed Use & Interchange Activity Center Maps
*** *** *** *** *** *** *** *** *** *** ***
US 41 East Overlay Maps
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PL2023000930
Exhibit A
TRANSPORTATION ELEMENT
(As amended through Ordinance No. 2017-25, adopted June 13, 2017)
*** *** *** *** *** *** *** *** *** *** ***
LIST OF TABLES/MAPS/FIGURES
MAP Page
TR-1* Cost Feasible Network Map – 2040 27
*** *** *** *** *** *** *** *** *** *** ***
TR-4* and TR-4.1* South US 41 Transportation Concurrency Exception Area
(TCEA) Maps 35- 36
TR-5 Northwest Transportation Concurrency Management Area (TCMA) Map 36 37
*** *** *** *** *** *** *** *** *** *** ***
GOALS, OBJECTIVES AND POLICIES 10
*** *** *** *** *** *** *** *** *** *** ***
OBJECTIVE 5:
Coordinate the Transportation System development process with the Future Land Use 14
Map
*** *** *** *** *** *** *** *** *** *** ***
Policy 5.4:
Pursuant to Section 163.3180, Florida Statues and the Urban Infill and Urban Redevelopment
Strategy contained in the Future Land Use Element of this Plan, the South US 41 Transportation
Concurrency Exception Area (TCEA) is hereby designated. Development located within the
South US 41 TCEA (Maps TR-4 and TR-4.1) may be exempt from transportation concurrency
requirements, so long as impacts to the transportation system are mitigated using the procedures
established in Policies 5.5 and 5.6 below, and in consideration of the following:
*** *** *** *** *** *** *** *** *** *** ***
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250 S. Orange Avenue | Suite 120P | Orlando, FL 32801 | (321) 430-1151 | www.fehrandpeers.com
Memorandum
Date: February 11, 2022
To: Laura S. DeJohn, Johnson Engineering
From: Kathrin Tellez
Subject: US 41 East Corridor Zoning Overlay – Transportation Policy Overview
OR21-0017
Introduction
The purpose of the US 41 East Corridor Zoning Overlay (project) is to develop a comprehensive
zoning overlay for the Tamiami Trail East (US 41) corridor, focused on land uses and development
standards that enhance the aesthetics, promote economic development and investment, and
improve mobility choices within and connecting to the area. The project extents are generally the
properties and activity centers abutting the Tamiami Trail East corridor, from east of the Bayshore/
Gateway Triangle Community Redevelopment Agency boundary to Port of the Islands, excluding
a portion of the corridor through the Rural Fringe Mixed-Use District. The purpose of this
memorandum is to summarize relevant policies and plans that may support, conflict, or hinder the
project goals. The specific documents reviewed as a part of this overview include:
• East Naples Community Development Plan
• Collier MPO Long Range Transportation Plan
• Collier County Growth Management Plan, Transportation Element
• Collier County Land Development Code
• Florida Department of Transportation (FDOT) Guidance Manuals (Access Management
and Context Classification)
• FDOT Efficient Transportation Decision Making Manual
• 2013-2017 All Crash Infographics Development, District 1
This memorandum is organized to provide a brief transportation overview of the study corridor,
followed by a summary of key policies, plans and codes from the documented noted above that
support, conflict, or hinder the project goals.
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Transportation Context
The Tamiami Trail East (US 41) is oriented southeast to northwest and connects Miami in the east
to Naples and Fort Myers in the north, and beyond. Through the study area, it serves the dual
purpose of accommodating regional travel and local connectivity. Travel patterns along the
roadway also fluctuate significantly depending on the season due to high levels of tourism and
seasonal residents, with the highest levels of activity experienced from late winter to early spring,
and significantly lower levels of activity during other times of year. Travel demand along the
corridor is consistent between about 10 AM and 3 PM, with peak roadway demands experienced
between 4 and 6 PM. The traditional morning peak hour of 7 to 9 AM is generally lower than
other times of day, indicating that while the roadway does accommodate the traditional commute
trips, its function goes well beyond that of accommodating peak period commute travel, and
serves a wide variety of trips throughout the day.
Much of the study corridor provides three travel lanes in each direction, with added turn lanes at
major intersections and destinations along the corridor. The posted speed limit is 45 miles per
hour (mph) in the northern section of the corridor, increasing to a high of 60 mph as you travel
south along the corridor. Average travel speeds are typically within the range of the posted speed
limit, with 85th percentile travel speeds generally around 5 to 10 percent higher than the posted
speed limit. Vehicle traffic volumes in the northern section of the corridor are approximately
42,000 vehicles per day based on 2019 data available from the Florida Department of
Transportation (FDOT). Vehicle traffic volumes generally decrease as you travel to the southeast to
around 20,000 vehicles per day around Sandpiper Drive and around 3,000 vehicle per day as you
travel to Port of the Islands. The roadway network surrounding the corridor can be disjointed in
sections, with developments taking access from US 41, but not providing connections to adjacent
developments, forcing some travel that could stay on local roadways to the state highway system.
Access control has been implemented along the corridor with landscaped medians and
channelized left-turns, with full access, signalized intersections spaced at about half-mile intervals,
which is appropriate for the current Suburban Commercial Context Zone (C3C).
Bicycle lanes are provided along US 41 from the northern end at Bayshore Drive to south of
Sandpiper Drive. South of Sandpiper Drive there is a striped area that serves as a defacto bike
lane area, although it is not consistently provided. Guidance based on existing traffic volumes
and vehicle speeds from the FHWA Bikeway Selection Guide indicates that for streets with daily
traffic volumes in excess of 6,000 vehicles per day and a prevailing speed of people driving over
30 miles per hour, a separated bike lane or shared use path is an appropriate bicycle facility.
Between 3,000 and 6,000 vehicles per day, and speed of people driving up to 30 miles per hour, a
buffered bike lane is recommended. For streets with less than 3,000 vehicles per day and people
driving less than 25 miles per hour, a shared lane may be appropriate. Based on this guidance, the
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existing bicycle facilities along US 41 are not appropriate for the volume and speed of vehicle
travel.
Sidewalks are consistently provided along US 41. In some locations, they are separated from the
roadway by a landscape buffer, and in some instances by a guard rail. In other locations, they are
provided adjacent to a travel lane. While new developments along the corridor are required to
provide a pedestrian connection from the development to the public street network, many uses
were constructed prior to those regulations being in place and pedestrian access to land uses can
be limited along some portions of the corridor. While sidewalks are consistently provided,
marked and controlled crossing locations of US 41 are infrequent.
Numerous transit routes operate along the corridor, with a major transfer point located at the
Collier County Government Center, near Airport-Pulling Road. From this transfer point, most of
the corridor is accessible via transit. Stops are spaced at about 1/2-mile intervals along the
corridor. Some stops are near signalized intersections to provide protected pedestrian crossings
to destinations on the other side of the street, while most are not located at pedestrian crossing
locations, limiting accessibility to transit stops, and promoting mid-block crossings of US 41.
In the past 5-years, approximately 71 people have been killed or seriously injured along this
section of roadway, including 13 people riding a motorcycle, 7 people bicycling and 8 people
walking. Although people walking and bicycling were involved in less than 5 percent of all
collisions, they represent more than 20 percent of people seriously injured or killed. Collisions
more frequently occur on the northern section of the corridor between Bayshore Drive and Collier
Boulevard. This section of the roadway has the highest level of activity for all travel modes, as well
as the greatest density of driveways providing direct access to land uses along the corridor.
Plan Review
The following summarizes some of the key findings from the review of plans that related to the
development/redevelopment of the corridor. For each plan, a general summary of the document
and key elements that support, conflict, or hinder project goals. A matrix with additional details is
provided as an attachment.
East Naples Community Development Plan
The East Naples Community Development Plan provides the framework for the Zoning Overlay
and provides the vision of balanced development, diverse and quality commercial, beautification
and green space, and transportation options. The existing conditions assessment identified that
many neighborhoods within the study area were not within a reasonable biking distance of many
desired uses, such as libraries, parks, and schools. The plan conceptually identified potential new
connections to US 41 and intersection improvements that would modify intersection
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configurations to decrease pedestrian walking distances, slow vehicle turning movements, and
increase overall connectivity. As the Zoning Overlay strategies are developed, the overall goals
and visions from this plan will be reviewed as tradeoffs are weighed.
Collier MPO Long Range Transportation Plan
The Collier Metropolitan Planning Organization (MPO) prepares a long range transportation plan
(LRTP) every five years with a minimum time horizon of 20 years. The plan serves to identify
needed improvements to the transportation network and a long-term investment framework to
address current and future challenges. The plan is centered around 10 goals, with various specific
objectives to achieve those goals:
1. Ensure the security of the transportation system for uses
2. Protect environmental resources
3. Improve system continuity and connectivity
4. Reduce roadway congestion
5. Promote freight movement
6. Increase the safety of the transportation system for users
7. Promote multimodal solutions
8. Promote the integrated planning of transportation and land use
9. Promote sustainability in the planning of transportation and land use
10. Consider climate change vulnerability and risk in transportation decision-making
Most of the LRTP goals and objectives are supportive of the proposed zoning overlay to
transform how US 41 continues to develop and be redeveloped. However, goals related to
roadway congestion may be contrary to other goals related to safety, climate vulnerability,
sustainable land use development patterns and system continuity and connectivity. It may be
challenging to achieve some goals if the primary metric used to evaluate the transportation
system is a driver perspective delay-based calculation. While it is important to maintain vehicle-
capacity, especially on critical evacuation routes, transportation metrics that measure the
efficiency of the system from the perspective of connectivity, accessibility, and safety outcomes,
such as vehicle miles of travel and access by mode, may be more appropriate metrics to evaluate
different land use and transportation network strategies along the corridor.
Collier County Growth Management Plan, Transportation
Element
The Transportation Element of the Collier County Growth Management Plan identifies the future
system needs, strategies for providing intermodal and multi-modal transportation, and connects
the transportation element with the land use element. Goals, objectives, and policies are
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articulated that primarily promote the development of a transportation system that is based on
the peak hour operations of roadways from the perspective of a vehicle driver.
There are goals, objectives, and policies related to transportation safety, multimodal
transportation systems, and the coordination of land use development and the transportation
system; however, there is not guidance on how decision makers should balance the inevitable
trade-offs between goals. For example, widening roadways to provide peak hour congestion relief
can result in longer crossing distances for pedestrians at intersections, higher speeds for people
driving at all times of day, and especially off-peak periods which can result in worsening safety
outcomes, and development patterns that encourage more driving trips rather than walking,
bicycling or transit trips. As development is proposed along the corridor, a traditional approach to
transportation impact assessments may show that from the perspective of a vehicle operator, the
plans are contrary to some county goals, although they would further goals related to safety,
multi-modal accessibility, and land use/transportation integration. Additionally, adding more
links to the transportation network may serve to disperse travel demand and change some travel
modes for existing trips. This would accommodate land use development without significant
increases in travel on the state highway system and future analysis should consider these
potential shifts in travel demand and travel mode.
Collier County Land Development Code
The Collier County Land Development Code provides guidance related to parking standards as
well as other development standards, such as sidewalk width, site design and development
standards and transportation level of service standards.
The parking requirements are prescriptive and set minimum parking standards that may not be
appropriate for all areas of the County, especially areas that are transitioning to destinations that
are easily accessible from adjacent neighborhoods via non-private auto-modes. Along the US 41
corridor, consideration should be given towards setting parking maximums with greater flexibility
provided to developers to provide the amount of parking expected to be demanded by a specific
use, rather than a prescribed minimum. Some jurisdictions allow for the first 1,500 square-feet of
locally serving land uses to be exempt from parking requirements to allow for greater flexibility in
the adaptive reuse of existing buildings and to reduce the development cost for new buildings.
Some also allow all new on-street parking created by the project to count towards the code-
requirement. For example, if a project eliminates 3 curb-cuts, which has the benefit of reducing
bike/ped conflict points and can provide 3 additional on-street parking spaces, their parking code
requirement would be reduced by three spaces. Some communities are also allowing golf
cart/neighborhood electric vehicle parking spaces to count towards the overall parking
requirement to encourage trips to activity centers in these lower-polluting, lower speed vehicles,
as well as make more efficient use of constrained sites.
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While there is a bicycle parking code requirement, it applies only to commercial developments
and sets a maximum number of bicycle parking spaces that need to be provided. It also does not
specify the type of bicycle parking to be provided. In bicycle friendly communities, employment
centers often require long-term bike parking that is covered and typically more secure than a bike
rack, as well as showers and lockers to encourage active transportation commutes. For residential
uses, at least one long-term bicycle space is required for every new multi-family residential unit.
The transportation level of service standards, as discussed in the context of the LRTP and the
Growth Management Plan, have the potential perpetuate current development patterns and
outcomes and changes to the approach are needed to help achieve the US 41 vision.
The development code provides requirements related to site design, orientation, and other
specific requirements. Elements of the code that could be refined to better help achieve the goals
articulated in the East Naples Community Development Plan include:
• Require connectivity and reciprocal access between adjacent developments as it would
reduce the reliance on the state highway network to accommodate local trips, would
reduce overall trip length, and would promote walking and biking within areas.
• Prohibit developments with cul-de-sacs and where they must be provided due to a
natural barrier, provide a pass-through for walking and bicycling
• Identify pedestrian priority areas along the corridor and require minimum width of
sidewalks greater than 6 feet.
• Update the bicycle facility requirements to align with the FHWA bicycle facility section
guidance
FDOT Guidance Manuals (Access Management and Context
Classification)
FDOT has been evolving the approach to planning, designing, and operating the transportation
system in response to worsening safety outcomes, and a desire to develop more multimodal
transportation systems that move away from prioritizing high-speed vehicle travel. The Access
Management Guidebook and the Context Classification Guide will be important resources for the
project team to refer to during the course of this project. To achieve the stated goals in the East
Naples Community Development Plan, a reclassification of the northern portion of the corridor,
generally from the northern end to Collier Boulevard from the current Suburban Commercial
(CSC) to an Urban General (C4) will be necessary.
A C3C context zone is characterized with mostly non-residential developments, large building
footprints and large parking lots within large blocks, and a disconnected or sparse roadway
network. Within the C4 zone, development is characterized by a mix of land uses set within small
blocks with a well-connected roadway network, that usually connects to residential
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neighborhoods immediately along the corridor or behind the uses fronting the roadway. Within
the C4 zone, roadway connections are permitted at more frequent intervals, minimum traffic
signal spacing on the state highway is reduced providing greater connectivity, especially for
people walking, bicycling, and taking transit, and speed limits are generally lower, improving
transportation safety outcomes. Coordination with District 1 staff to provide a planned C4
designation for the section of roadway from south of Collier Boulevard to the northern corridor
extents should occur as a part of the Zoning Overlay process. As redevelopment occurs, it would
be held to the C4 standards.
The Access Management Guidebook will be an important resource to consult as concepts are
developed for specific segments of the corridor that might involve consolidating driveway, adding
new street connections, and eliminating excessive turn lanes that increase pedestrian crossing
distances. Guidance is also provided related to driveway designs that may be more appropriate
for an evolving roadway are also provided.
FDOT Efficient Transportation Decision Making Manual
The purpose of the Efficient Transportation Decision Making (ETDM) process is to incorporate
environmental considerations into transportation planning to inform project delivery. This process
supports the environmental policy of the Florida Department of Transportation (FDOT) to “protect
and preserve the quality of life, and the natural, physical, social, and cultural resources of the
State, while expeditiously developing safe, cost effective, and efficient transportation systems”.
The ETDM process is applied to roadway projects that add capacity and the screening process for
Public Transportation projects with a goal of identifying potential issues that should be further
explored during scope development, facilitate timely decision making that considers
environmental quality, promote public and environmental technical advisory team participation,
provide a link between the planning and Project Development and Environment (PD&E) phases,
including the appropriate environmental documentation review, and incorporation of appropriate
issue resolution mechanisms during the planning process.
The ETDM does not provide specific evaluation metrics, which provides Collier County an
opportunity to develop policies and standards that more meaningfully address the concerns of
the community along and connecting to the US 41 corridor.
FDOT D1 Safety Review
FDOT District 1 (D1) has placed an emphasis on improving transportation safety outcomes on
roadways within D1. Within Collier County, most crashes occur on the C3C network, followed
closely by Suburban Residential (C3R) classification, primarily because these are the most
prevalent roadway types within the County, but they are also the roadways with the highest
vehicle volumes and highest speed vehicle travel. A disproportionate number of crashes that
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result in a severe injury or fatality involve a vulnerable roadway user (someone walking, bicycling,
or riding a motorcycle) and involve high speeds as a contributing factor. Most fatal crashes on
roadways within District 1 are on roadways with more than four travel lanes and posted speed
limits of 40 miles per hour or greater. Four, five and six lane roadways with a posted speed limit
of 35 miles per hour or less have the lowest level of fatal crashes within the district. Given these
crash trends, the County’s plan to evolve the land uses and transportation system along and
connecting to US 41 align with the districts goals to eliminate serious injury and fatal crashes on
our roadways.
Conclusions
Our overall review of the existing transportation and policy context along the US 41 corridor
between indicates that most local and regional planning documents have policies that are
generally supportive of the type of development and transportation system changes proposed as
a part of the East Naples Community Development Plan. However, many of these policies and
procedures also require an evaluation of roadway capacity from the perspective of vehicle drivers
delay and may require an oversupply of vehicle parking. Incorporating development standards
that might still consider levels of service for people driving, but also consider safety, network
connectivity, overall travel time, vehicle miles of travel, and other metrics that more meaningfully
measure the goals of the project would help the County Achieve the vision of enhancing
aesthetics, promoting economic development and investment, and improving mobility choices
within and connecting to the area.
Please contact Kathrin at k.tellez@fehrandpeers.com or (321) 754-9902 if you have questions.
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300 S. Orange Avenue | Suite 1120 | Orlando, FL 32801 | (321) 430-1151 | www.fehrandpeers.com
Memorandum
Date: November 29, 2022
To: Laura S. DeJohn, Johnson Engineering
From: Kathrin Tellez
Subject: US 41 East Corridor Zoning Overlay – Focused Transportation Analysis
OR21-0017
Introduction
The purpose of the US 41 East Corridor Zoning Overlay (project) is to develop a comprehensive
zoning overlay for the Tamiami Trail East (US 41) corridor, focused on land uses and development
standards that enhance the aesthetics, promote economic development and investment, and
improve mobility choices within and connecting to the area. The project extents are generally the
properties and activity centers abutting the Tamiami Trail East corridor, from east of the Bayshore/
Gateway Triangle Community Redevelopment Agency boundary to Port of the Islands, excluding
a portion of the corridor through the Rural Fringe Mixed-Use District.
While no specific development is proposed along the corridor as a part of the zoning overlay, the
zoning changes could increase the density and type of development along the corridor. The
purpose of this memorandum is to provide the results of a focused transportation assessment for
two parcels along the corridor under project conditions, reflective of the potential for increased
density.
The transportation context of the corridor was described in a technical memorandum dated
February 11, 2022. This memorandum is organized to provide a brief description of the
hypothetical development potential for two parcels along the corridor, the trip generating
potential of that hypothetical development, and the analysis results, which include intersection
operations and an assessment of vehicle miles of travel.
Overall, the analysis results indicate that infill development along the US 41 corridor in
combination with improved walking, bicycling and transit access has the potential to result in
development patterns that encourage more non-auto trips, and when trips are made in a vehicle,
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they are expected to be shorter than trips made by new development in other parts of the
County. Congested conditions would occur at major intersections along US 41 regardless of the
project and focused development on the US 41 corridor would place fewer demands on other
portions of the transportation system.
Development Potential
Two hypothetical development scenarios were developed under the proposed zoning overlay.
One site is located to the north of Saint Andrews Boulevard on the east side of US 41 (St. Andrews
Square) and the second site is located on west side of US 41 just north of Collier Boulevard
(Lowes Infill). Under both hypothetical development scenarios, it was assumed that development
would occur on existing surface parking. The following describes the potential development
St. Andrews Square
• Existing retail to remain unchanged (51,400 square feet)
• New retail (7,200 square feet)
• Multifamily dwelling units (10 units)
Lowes Infill
• Existing retail to remain unchanged (150,000 square feet)
• New retail (24,360 square feet)
• New hotel (150 rooms)
• Multifamily dwelling units (42 units)
Under the current zoning, residential development of up to 16 units per acre would be permitted
on the St. Andrews Square through rezoning the existing commercial acreage to residential
zoning. The Lowes Infill Site is eligible for 4 dwelling units per acre for half the site and 16
dwelling units per acre for the other half of the site under current zoning. Neither site has any
existing entitled development.
Trip Generation
Trip generation typically refers to the process of estimating the amount of vehicular traffic a
project might add to the local roadway network. In addition to estimates of daily traffic, estimates
are also created for the peak one-hour period during the morning (AM) and evening (PM)
commute hours, when traffic volumes on adjacent streets are typically at their highest.
The traditional trip generation methods commonly used by traffic engineers can overestimate the
vehicle trip generation of mixed-use developments (MXDs) in urban/urbanizing areas with a
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variety of travel options because the traditional methods do not accurately reflect the amount of
internal trip linking or the level of trips made by transit, biking, and/or walking. This can result in
higher development costs due to oversized infrastructure, skewed public perception of the likely
impacts of development, resistance to approving smart growth projects, and designs that are
oriented towards prioritizing vehicle travel which ultimately results in more vehicle travel that can
diminish the availably and desirability to travel by other modes.
To better account for the evolution of the land uses and the transportation system along US 41
project’s as well as the overall County goal of promoting mixed-use development that reduces
vehicle trip generation and supports non-auto travel modes, Fehr & Peers used a mixed-use trip
generation model, known as MXD+, to estimate project trip generation, pivoting from published
trip generation rates in the Institute of Transportation Engineers (ITE) Trip Generation Manual (11th
Edition). The trip generation results are shown in Table 1 for the St. Andrews Square site and in
Table 2 for the Lowes Infill site.
As shown in Table 1, the St. Andrews Square site would be expected to generate about 460 trips
per day. However, as the development would be within an existing shopping plaza, about 5
percent of trips are expected to remain internal to the site, meaning that someone patronizing
the existing retail would also patronize the new development, as well as the potential for
someone who lives in the new multifamily development also patronizing the existing or future
retail. Given the existing surrounding land use and transportation system context, few people are
expected to arrive at the site via non-auto modes – about 10 daily trips. This level of non-auto
trip making could be higher as transportation system improvements are made to better connect
the site to the surrounding neighborhoods. After the application of pass-by trips to the retail
component, these are trips that are already on the roadway system and a visit to the site would
be part of an already planned trip, in-fill development at the St. Andrews Square site is expected
to generate about 360 daily vehicle trips, including 17 morning peak hour and 41 evening peak
hour trips.
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Table 1: St. Andrews Square – Trip Generation Estimates
Use Size Daily AM Peak Hour PM Peak Hour
In Out Total In Out Total
Retail1 7,200 square-feet (sf) 390 10 7 17 24 23 47
Residential – Multi-Family Low Rise2 10 Units 70 1 3 4 3 2 5
Total Trip Generation 460 11 10 21 27 25 52
Trip Adjustments
Internal Capture3 -20 -1 -0 -2 -2 -1 -3
Vehicle Trips Converted to Walk/Bike/Transit Trips4 -10 0 0 0 0 0 0
Total Driveway Vehicle Volumes 430 10 10 20 25 24 49
Less Pass-by Trips5 -70 -2 -1 -3 -4 -4 -8
Net New Vehicle Trips to Transportation Network12 360 8 9 17 21 20 41
Notes:
1. Based on Trip Generation (11th Edition) trip generation rates for land use 822, General Strip Retail, from suburban locations 2. Based on Trip Generation (11th Edition) trip generation rates for land use 930, Multifamily Housing Low Rise. 3. Internal trips, meaning trips that have an origin and destination within the site including the existing retail uses, are expected to comprise 5 percent of daily, 5 percent of morning peak hour and 6 percent of PM peak hour activity. 4. Walk/bike and transit trips are expected to comprise about 2 percent of daily activity with minimal peak hour activity. 5. A pass-by trip reduction of 20 percent was applied to the retail trip generation after the application of internal and non-auto reductions. Source: Fehr & Peers, 2022.
For the Lowes Infill Site, the infill development potential could generate about 2,800 new trips.
After considering the amount of activity that would remain internal to the site, about 10 percent,
as well as the potential for walk/bike and transit trips, about 2 percent, the project vehicle trip
generation would reduce to about 2,470 trips. After the application of the pass-by reduction, the
overall added trips to the transportation system would be about 2,240 trips, including 116
morning peak hour and 213 evening peak hour trips.
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Table 2: Lowes Infill – Trip Generation Estimates
Use Size Daily AM Peak Hour PM Peak Hour
In Out Total In Out Total
Retail1 24,360 square-feet (sf) 1,330 34 23 57 81 80 161
Hotel2 150 Rooms 1,200 39 30 69 45 44 89
Residential – Multi-Family Low Rise3 42 Units 280 4 13 17 13 8 21
Total Trip Generation 2,810 77 66 143 139 132 271
Trip Adjustments
Internal Capture4 -280 -9 -8 -17 -14 -13 -27
Vehicle Trips Converted to Walk/Bike/Transit Trips5 -60 0 0 0 -2 -1 -3
Total Driveway Vehicle Volumes 2,470 68 58 126 123 118 241
Less Pass-by Trips6 -230 -5 -5 -10 -14 -14 -28
Net New Vehicle Trips to Transportation Network12 2,240 63 53 116 109 104 213
Notes: 1. Based on Trip Generation (11th Edition) trip generation rates for land use 822, General Strip Retail, from suburban locations 2. Based on Trip Generation (10th Edition) trip generation rates for land use 310, Hotel, from suburban locations 3. Based on Trip Generation (10th Edition) trip generation rates for land use 930, Multifamily Housing Low Rise. 4. Internal trips, meaning trips that have an origin and destination within the site including the existing retail uses, are expected to comprise 10 percent of daily, 12 percent of morning peak hour and 10 percent of PM peak hour activity. 5. Walk/bike and transit trips are expected to comprise about 2 percent of daily activity and 1 percent of PM peak hour activity. 6. A pass-by trip reduction of 20 percent was applied to the retail trip generation after the application of internal and non-auto reductions. Source: Fehr & Peers, 2022.
New land uses that could be developed on either hypothetical development site under current
zoning would generate fewer trips than could be generated by development allowed under the
zoning overlay.
Analysis Results
To assess the effect of the rezoning on the transportation system, two types of analysis were
conducted. The first is a focused intersection analysis of the intersections closest to the two
hypothetical development sites:
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1. US 41 at Saint Andrews
2. US 41 at Triangle Boulevard
3. US 41 at Celeste Drive
4. US 41 at Collier Boulevard
The second analysis is an assessment of vehicle miles of travel (VMT). This relates to how far
people travel by vehicle on a typical day – the greater levels of VMT on a per person basis, the
more likely congested conditions will ultimately occur as people have to travel long distances for
employment, shopping, education, recreation, and other trip purposes.
Intersection Operations
The operations of roadway facilities are described with the term “level of service” (LOS). LOS is a
qualitative description of traffic flow from a vehicle driver’s perspective based on factors such as
speed, travel time, delay, and freedom to maneuver. Six levels of service are defined ranging from
LOS A (free-flow conditions) to LOS F (over capacity conditions). LOS E corresponds to operations
“at capacity.” When volumes exceed capacity, stop-and-go conditions result, and operations are
designated LOS F. Collier County and the Florida Department of transportation (FDOT) strive to
maintain LOS E operations at the intersections in the study area.
Signalized Intersections
Traffic conditions at signalized intersections were evaluated using methods developed by the
Transportation Research Board (TRB), as documented in various editions of the Highway Capacity
Manual, for vehicles using the analysis software Synchro 10.0. Different versions of the HCM were
applied to different intersections due to limitations within the Synchro software to account for the
signal phasing parameters and U-turn movements at some intersections, with the most current
version of HCM applied as appropriate. The HCM methodologies calculate control delay at an
intersection based on inputs such as traffic volumes, lane geometry, signal phasing and timing,
pedestrian crossing times, and peak hour factors. Control delay is defined as the delay directly
associated with the traffic control device (i.e., a stop sign or a traffic signal) and specifically
includes initial deceleration delay, queue move-up time, stopped delay, and final acceleration
delay. The relationship between LOS and control delay is summarized in Table 3 for signalized
intersections.
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Table 3: Signalized Intersection LOS Criteria
Level of Service Description Delay in Seconds
A Progression is extremely favorable, and most vehicles arrive during the green phase. Most vehicles do not stop at all. Short cycle lengths may also contribute to low delay. < 10.0
B Progression is good, cycle lengths are short, or both. More vehicles stop than with LOS A, causing higher levels of average delay. > 10.0 to 20.0
C Higher congestion may result from fair progression, longer cycle lengths, or both. Individual cycle failures may begin to appear at this level, though many still pass through the intersection without stopping.
> 20.0 to 35.0
D
The influence of congestion becomes more noticeable. Longer delays may result from some combination of unfavorable progression, long cycle lengths, or high V/C ratios. Many vehicles stop, and the proportion of vehicles not stopping declines. Individual cycle failures are noticeable.
> 35.0 to 55.0
E This level is considered by many agencies to be the limit of acceptable delay. These high delay values generally indicate poor progression, long cycle lengths, and high V/C ratios. Individual cycle failures are frequent occurrences.
> 55.0 to 80.0
F
This level is considered unacceptable with oversaturation, which is when arrival flow rates exceed the capacity of the intersection. This level may also occur at high V/C ratios below 1.0 with many individual cycle failures. Poor progression and long cycle lengths may also be contributing factors to such delay levels, and most cycles fail to clear the queue.
> 80.0
Source: Highway Capacity Manual.
Unsignalized Intersections
For unsignalized (all-way stop controlled and side-street stop controlled) intersections, the HCM
method for unsignalized intersections was used. With this method, operations are defined by the
average control delay per vehicle (measured in seconds). The control delay incorporates delay
associated with deceleration, acceleration, stopping, and moving up in queue. Table 4
summarizes the relationship between LOS and delay for unsignalized intersections. At side-street
stop-controlled intersections, the delay is calculated for each stop-controlled movement, the left-
turn movement from the major street, as well as the intersection average. The intersection
average delay and highest movement/approach delay are reported for side-street stop-controlled
intersections.
Table 4: Unsignalized Intersection LOS Criteria
Level of Service Description Delay in Seconds
A Little or no delays ≤ 10.0
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B Short traffic delays > 10.0 to 15.0
C Average traffic delays > 15.0 to 25.0
D Long traffic delays > 25.0 to 35.0
E Very long traffic delays > 35.0 to 50.0
F Extreme traffic, delays where intersection capacity exceeded > 50.0
Source: Highway Capacity Manual.
Existing Intersection Operations
This analysis focuses on the weekday evening (4:00 to 6:00 PM) peak period when traffic volumes
on the surrounding roadway network are the highest, and when the project generates the most
vehicle traffic. Intersection vehicle turning movement counts were conducted in September 2022
on a clear day with typical travel patterns for the time of year. In addition to the count of vehicles
traveling through the study intersections, a separate count of bicyclists and pedestrians was also
conducted. For the study intersections, the single hour with the highest traffic volumes during the
count periods was identified. To reflect conditions during peak season, FDOT guidance regarding
seasonal adjustment factors was applied such that the volumes collected in September 2022 are
reflective of peak season.
Existing intersection operations were evaluated using the methodology described above. The
analysis was based on the traffic volumes, lane configurations and existing signal timings obtained
from FDOT and the County. Observed peak hour factors 1 were used at all intersections for the
existing conditions analysis. Truck, pedestrian, and bicycle activity was factored into the analysis.
The intersection operations results are summarized in Table 5, which shows the intersections in the
vicinity of the focused analysis sites operate within the level of service standard.
1 The relationship between the peak 15-minute flow rate and the full hourly volume is given by the peak-hour factor (PHF) as shown in the following equation: PHF=Hourly volume/(4* volume during the peak 15 minutes of flow). The analysis of level of service is based on peak rates of flow occurring within the peak hour because substantial short-term fluctuations typically occur during an hour.
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Table 5: Existing Conditions – Weekday Evening Peak Hour Intersection Operations
Intersection Control1 LOS Standard Existing Conditions
Delay2 LOS
1. US 41 at Saint Andrews Signalized E 16 B
2. US 41 at Triangle Boulevard Signalized E 40 D
3. US 41 at Celeste Drive Side-Street Stop E 1 (20) A (C)
4. US 41 at Collier Boulevard Signalized E 69 E
Notes:
1. Existing intersection traffic control type (Signal = Signalized, Side-Street Stop = Side-Street Stop control) 2. Whole intersection average delay reported for signalized intersections. Side-Street Stop-Controlled intersection delay presented as Whole Intersection Average Delay (Worst Movement Delay). Source: Fehr & Peers, 2022.
Project Conditions
To assess operations of the intersections with the proposed land use intensification, the project
trip generation estimates were added to the existing traffic counts and the intersection operations
analysis was updated. The results are presented on Table 6, which shows that the additional
traffic generated from the infill development potential would marginally impact intersection
operations along the corridor and all intersections would continue to operate within the
established level of service standard.
Table 6: Existing with Project Conditions – Weekday PM Peak Hour Intersection
Operations
Intersection Control1 LOS Standard
Existing Existing with Project
Delay2 LOS Delay2 LOS
1. US 41 at Saint Andrews Signalized E 16 B 16 B
2. US 41 at Triangle Boulevard Signalized E 40 D 43 D
3. US 41 at Celeste Drive Side-Street Stop E 1 (20) A (C) 1 (21) A (C)
4. US 41 at Collier Boulevard Signalized E 69 E 70 E
Notes: 1. Existing intersection traffic control type (Signal = Signalized, Side-Street Stop = Side-Street Stop control) 2. Whole intersection average delay reported for signalized intersections. Side-Street Stop-Controlled intersection delay presented as Whole Intersection Average Delay (Worst Movement Delay). Source: Fehr & Peers, 2022.
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Future Conditions
An assessment of future year conditions was also conducted using the regional travel demand
model to estimate growth in future travel in the area based on projections of land use
development in the County and within the incorporated cities. Overall, the population in the
County is expected to increase over 40 percent in the next 30 years, with an almost 70 percent
increase in employment, resulting in an annual increase in range of 2 to 4 percent in traffic
volumes along the corridor. This is expected to result in more frequent congested conditions and
some intersections are projected to exceed their level of service standard. It should be noted that
these are development projections and likely may not be realized as envisioned in the travel
model. While infill development would contribute worsening congestion along the corridor, it also
has the potential to reduce trip lengths and in the long-term encourage some people to walk,
bike or take transit instead of a personal vehicle.
Vehicle Miles of Travel
An assessment of the amount of vehicle miles (VMT) of travel within the county was conducted
using the regional travel model to estimate the amount of travel attributed to development within
the county. For this calculation, all travel with both the trip origin and trip destination within the
county was accounted for in addition to half of the travel with at least one trip end within the
county. All regional through traffic – trips that pass through the county but do not stop – was
excluded. Using the base year regional travel demand model (2015), it is estimated that land uses
within Collier County generate about 7.2 million miles of travel per day, or about 20 miles of
vehicle travel per resident per day. This accounts for travel on all roadways within the County and
all people regardless of if they drive. In the future year, this level of travel is expected to increase
by about 20 percent on a per resident basis, indicating the future development patterns in the
County are planned to be more dispersed than current patterns with future residents needing to
travel farther for goods and services based on the planned location of residential developments
combined with the location of other land uses.
Land uses along the southern portion of the US 41 corridor tend to generate slightly more vehicle
miles of travel than the regional average due to its location in the southern portion of the county,
in the existing condition. However, the amount of travel generated by land uses along the
corridor in the future is projected to decrease, meaning that development along the corridor is
more location efficient that other planned development elsewhere in the County.
Conclusions
Overall, the analysis results indicate that infill development along the US 41 corridor in
combination with improved walking, bicycling and transit access has the potential to result in
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development patterns that encourage more non-auto trips, and when trips are made in a vehicle,
they are expected to be shorter than trips made by new development in other parts of the
County. Congested conditions would occur at major intersections along US 41 regardless of the
project and focused development on the US 41 corridor would place fewer demands on other
portions of the transportation system.
Please contact Kathrin at k.tellez@fehrandpeers.com or (321) 754-9902 if you have questions.
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