EAC Agenda 01/05/2011
EAC
AGENDA
JANUARY 5, 2011
COLLIER COUNTY ENVIRONMENTAL ADVISORY COUNCil AGENDA
January 5, 2011
9:00 A.M.
Commission Boardroom
W. Harmon Turner Building (Building "F") - Third Floor
I. Call to Order
II. Roll Call
A. Welcome new member Gina Downs
III. Approval of Agenda
IV. Approval of December 1, 2010 meeting minutes
V. Upcoming Environmental Advisory Council Absences
VI. land Use Petitions - none
VII. New Business
VIII. Old Business
A. Immokalee Area Master Plan GMP Amendment - Adoption
B. Watershed Management Plan Update
C. Update members on projects
X. Council Member Comments
XI. Staff Comments
XII. Public Comments
XIII. Adjournment
*******************************************************************
Council Members: Please notify Summer Araaue. Senior Environmental Specialist no later than
5:00 p.m. on December 29.2010 if you cannot attend this meetina or if yOU have a conflict and will
abstain from votina on a petition (252-6290). Stephen lenberaer (239) 252-2915 shall be contacted
if needed after December 30. 2010.
General Public: Any person who decides to appeal a decision of this Board will need a record of the
proceedings pertaining thereto; and therefore may need to ensure that a verbatim record of proceedings is
made, which record includes the testimony and evidence upon which the appeal is to be based.
C __ler County
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Growth Management DMsion
Planning & Regulation
Memorandum
To:
Environmental Advisory Council
From:
Mac Hatcher, Senior Environmental Specialist
Date:
December 22, 2010
Subject:
Staff Summary - January 5, 2011 Watershed Management Plan Workshop Update
Obiective: To provide a brief update on the Functional Assessment of habitat as part of the
Watershed Management Plans.
Considerations: Recent legislation requires Collier County to adopt at least the "Model Ordinance"
because we have water bodies that have been designated Impaired for nutrients by FDEP. I have
attached links to some pertinent background documents from the Watershed Management Plan
Informational links and Documents (http://www.colliergov.net/Index.aspx?page=2302) below:
Functional Assessment - http://www.colliergov.net/Modules/Show Document.aspx?documentid=3 3 5 83
Updates to some of the water quality assessments have been posted on the web site and I anticipate these
will be discussed at the February meeting.
Instream Water Quality - http://www.collier~ov.net/Modules/ShowDocument.aspx?documentid=33584
Receiving Water Quality - http://www.colliergov.net/Modules/ShowDocument.aspx?documentid=33585
FISCAL IMPACT: There are no fiscal impacts at this time.
GROWTH MANAGEMENT IMPACT: Completion of the WMPs will support objective 2.1 of the
Conservation and Coastal Management Element of the County Growth Management Plan.
PREPARED BY: Mac Hatcher, Senior Environmental Specialist, Growth management Division
/ Planning and Regulation
CP-2008.5 Immokalee Area Master Plan GMP Amendment
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STAFF REPORT
ENVIRONMENTAL ADVISORY COUNCIL
TO:
FROM:
ENVIRONMENTAL ADVISORY COUNCIL
GROWTH MANAGEMENT DIVISION - PLANNING AND REGULATION,
COMPREHENSIVE PLANNING SECTION
HEARING DATE: January 5,2011
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RE:
PETITION CP-2008-5, IMMOKALEE AREA MASTER PLAN GROWTH
MANAGEMENT PLAN AMENDMENT (ADOPTION HEARING)
Coordinator: Carolina Valera, Principal Planner
AGENT/APPLICANT:
Agent:
Robert Mulhere
RWA, Inc.
6610 Willow Park Drive, Suite 200
Naples, FL 34109
Applicant/Owner:
Immokalee Community Redevelopment Agency (ORA)
Collier County Government
310 Alachua Street
Immokalee, FL 34142
GEOGRAPHIC LOCATION:
The Immokalee urban area is a region of about 30 square miles containing :t17, 116 acres of
land, and is located in northeast Collier County, approximately 27 miles from the intersection of
Immokalee Road (C.R. 846) and Collier Boulevard (C.R. 951) in Naples to the intersection of
South First Street and Main Street in Immokalee. The Immokalee urban area comprises the
Immokalee planning community.
REQUESTED ACTION:
The subject area of this amendment request is designated Urban on the Future Land Use Map
(FLUM) of the Immokalee Area Master Plan (lAMP) element of the Growth Management Plan
(GMP). This petition seeks to revise and replace in its entirety the existing adopted Immokalee
Area Master Plan Element of the GMP, including the existing Implementation Strategy, which
encompass the Goals, Objectives, and Policies; the Land Use Designation Description Section,
which generally indicate the types of land uses for which zoning may be requested; and the
Future Land Use Map (FLUM). Additionally, approximate 103 acres designated
Agricultural/Rural and within the Rural Lands Stewardshrp Area Overlay are proposed to be
added to the lAMP and those lands re-designated as Urban. This petition also proposes
changes to Policy 6.2.5 of the Conservation and Coastal Management Element (CCME) to add
language to address the vegetation retention requirements that would apply to lands within the
Lake Trafford/Camp Keais Strand System; and revisions to the Future Land Use Map Series of
the Future Land Use Element (FLUE) to reflect the additional 103 acres to the Immokalee Urban
area.
CP-2008-5 Immokalee Area Master Plan GMP Amendment
SURROUNDING LAND USE, ZONING AND FUTURE LAND USE DESIGNATION:
Subiect Area:
More than half of the land use type within the Immokalee Urban area is presently agricultural.
The remainder is a mixture of residential, commercial and industrial uses. Immokalee is
accessed from the south and east by its major roadway, Immokalee Road (CR 846). State Road
29 provides access into the Community from the northern counties of Lee and Hendry and to
the southeast areas of Collier County.
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PROPOSED fLUM MAP
IMMOKALEE FUTURE LAND USE MAP
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Draft Future Land Use Map (FLUM)
SurroundinQ Lands:
North: Lands designated Agricultural/Rural Mixed Use District, Rural Lands Stewardship Area
Overlay (RLSA) on the countywide Future Land Use Map (FLUM). The vast majority of
these lands are zoned Rural Agricultural District (A).
South: Lands designated Agricultural/Rural Mixed Use District, RLSA on the countywide
FLUM. Most of these lands are undeveloped and are zoned Rural Agricultural District
(A).
East: Lands designated Agricultural/Rural Mixed Use District, RLSA on the countywide
FLUM. Lands to the east are within the Area of Critical State Concern on the
countywide FLUM and which are within the Okaloacoochee Habitat Stewardship Area
(HSA) and the Okaloacoochee Slough Flowway Stewardship Area (FSA). These lands
are undeveloped and most are zoned Rural Agricultural District (A).
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CP-2008.5 Immokalee Area Master Plan GM? Amendment
West: Lands designated Agricultural/Rural Mixed Use District, RLSA on the countywide
FLUM; as well as Lake Trafford and lands within the Camp Keais Strand FSA. Most of
these lands are undeveloped.
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IMMOKALEe FUTURE LAND use MAP
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Existing lmmokalee Area Master Plan (lAMP) Future Land Use Map (FLUM)
CONSlDERA TIONS:
The proposed Immokalee Area Master Plan (lAMP) intends to implement the Immokalee
community's vision, as approved by the Immokalee Area Master Plan and Visioning Committee
(IMPVC). by promoting economic development and efficient delivery of services through greater
density and intensity that encourage dense, clustered development along major thoroughfares
that transition to lower densities; incorporating smart growth principles; and by providing greater
development flexibility through mixed-use Subdistricts. The revised Immokalee Future Land Use
map provides integrity to the geographic region.
In general, the amendment to the lAMP element of the GMP proposes eight new goals, each
with respective objectives and policies; followed by the revised Land Use Designation
Description Section which includes and describes the proposed land use designations that will
guide patterns of development within the Immokalee urban area and further the proposed goals
through standards set forth within such land used designations, and the types of allowed land
uses that could be requested.
The following are some of the major changes proposed in this petition:
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CP-2008-5 Immokalee Area Master Plan GMP Amendment
. Re-configuration of the wetland boundary that connects to Lake Trafford/Camp Keais
Strand System Overlay. This revision was requested by staff.
. Re-designation of the lands within the boundary of the Immokalee Regional Airport from
Industrial (10) to Immokalee Regional Airport Subdistrict (APO).
. Addition of :t103 acres of land that are proposed to be removed from the Rural Lands
Stewardship Area Overlay (RLSA) and be included within the boundary of the
Immokalee Regional Airport Subdistrict (APO).
. Addition of the "Loop Road," which is proposed to allow access from the Immokalee
Regional Airport and Florida Tradeport areas, to SR82 and SR29.
. Revisions to the land use designations in the lAMP FLUM include:
o An increase in the base density allowed within the mixed use designated areas.
However, no change in base density (DU/A - dwelling units per acre) is proposed
within the Low, Medium, High and RT designated areas.
o An increase of about 10 percent in the number of potential dwelling units that
could be developed through base density.
o Changes in the maximum density allowed within the low residential (reduction)
and mixed use designated areas (increase).
o An 18 percent reduction in the maximum number of potential dwelling units that
would be allowed in the lAMP.
o An increase of :1:201 acres of Recreational Tourist (RT) designated lands.
o An increase on the cap of allowed density that can be requested within the
Immokalee Urban Area, via density bonus, from a maximum of 16 DU/A to a cap
of 20 DU/A.
o A five percent reduction of residential designated lands. This change of over
:1:636 acres of residential designated lands are proposed to be re-designated to
allow commercial and industrial development, as well as uses that are allowed
under the RT designation.
o An increase of :t80 acres of commercial designated lands.
o An increase of :1:462 acres of industrial designated lands. This increase includes
the re-designation from Industrial (ID) to Immokalee Regional Airport Subdistrict
(APO) of 1484.3 acres of land that are part of the Immokalee Regional Airport
boundary.
TRANSMITTAL HEARINGS:
Environmental Advisorv Council (EACl Recommendation:
The EAC heard this petition at their January 6, 2010 meeting and unanimously recommended
(3-0) to forward the subject amendment, CP-2008-5, Immokalee Area Master Plan, to the BCC
with a recommendation to transmit to the Florida Department of Community Affairs (DCA)
subject to the following conditions:
1. Standardize the Lake Trafford Camp Keais Strand System (L TCKSS) Overlay
terminology throughout the document. [Staff note: This condition has been addressed
in the revised document.}
4
CP-2008-5 Immokalee Area Master Plan GMP Amendment
2. Allow any lands within the L TCKSS to qualify for density and intensity blending. [Staff
note: This condition was incorporated into the document per the BCC conditions
of approval to transmit to DCA. Please refer to BCC condition number 3
discussions, under the BCC recommendation in the following page.]
3. Prohibit density increases within the L TCKSS Overlay. [Staff note: This condition has
been addressed in the revised document through the exemption of any bonuses to
lands within the L T/CKSSO. Additionally, the density and intensity blending
provisions that apply to lands within the L T/CKSSO are intended to encourage
shifting development from Urban designated lands to lands within the RLSA.]
4. Allow wetlands within the L TCKSS that are restored to high quality wetlands to qualify for
density intensity blending. [Staff note: As noted above, this condition has been
addressed in the revised document.}
5. Prohibit retroactive L TCKSS development applications. [Staff note: This condition has
been addressed in the revised document.]
6. Remove the Greenfield Designation. [Staff note: Greenfield designation has been
removed from the document.]
7. Policv 4.1 .1 - Postpone the TDR adoption process for a period of 2 years to determine its
feasibility and if a Growth Management Plan amendment is required. [Staff note: This
condition has been addressed in the revised document. Please note that Policy
4.1.1 has been re-numbered to Policy 5.1.1 in the revised lAMP.]
8. Clarify Policies on how lands will be designated for "Conservation.. [Staff note: This
condition has been addressed in the revised document. Please note that a
Conservation designation is not being proposed at this time. However, the revised
document includes requirements to evaluate the need of such for the inclusion of a
Conservation designation through the Evaluation and Appraisal Report process.]
9. Separate the Mitigation Bank Policy into Public and Private designations. [Staff note:
This condition has been addressed in the revised document.]
1 O. Policv 6.1.7 to read - "Within two (2) years of adoption of the Policy, Collier County shall
amend the Land Development Code to provide for a deviation process from the current
native vegetation retention standards set forth in the CCME Policy 6.1.1 for
developments within the Immokalee Urban Area. This deviation process shall be
consistent with provisions set forth in CCME Policy 6.1.1(10). '1 [Staff note: This
condition has been addressed in the revised document. Please note that Policy
4.1.1 has been re-numbered to Policy 5.1.1 in the revised lAMP.]
11 . Goal 4 - expand language to include listed species for upland and scrub jay habitat
within the Immokalee Urban Area [Staff note: This condition was included by the
agent for the petitioner, but later revised by the CCPC. However, the revised
language is intended to be general and therefore to include listed species,
Including scrub jay habitat. Please note that Goal 4 has been re-numbered to Goal
5 in the revised lAMP.]
5
CP.2008-5 Immokalee Area Master Plan GMP Amendment
12. Provide a data analysis on how the Immokalee Sewer and Water District intends to meet
the demands of future development. [Staff note: This condition has been addressed
in the revised data and analysis.]
13. Policv 4.1.2 line 1 - from "Recognizing the importance of Lake Trafford to potential
ecotourism..." To "Recognizing the importance of Lake Trafford and the surrounding
wetlands and natural habitat to the ecosystem, economy and ecotourism... II [Staff note:
This condition has been addressed in the revised document. Please note that:
Policy 4.1.2 has been re-numbered to Policy 5.1.2 in the revised lAMP.]
14. Policv 4.1.2 - line 4-5 from - "Within 2 years of the adoption of the Policy, the County in
conjunction with the Immokalee Community Redevelopment Agency will amend the ..." to
"Within 2 years of the adoption of this Policy, the County in conjunction with the
Immokalee Community Redevelopment Agency and any applicable State or Federal
Agencies will amend the ..." [Staff note: This condition has been addressed in the
revised document. Please note that Policy 4.1.2 has been re-numbered to Policy
5.1.2 in the revised lAMP.]
15. Policv 4.1.3 line 1 - from "Collier County will continue to cooperate with agencies on
remediation efforts at Lake Trafford..." to "Collier County will continue to cooperate with
agencies on remediation, restoration and continuing long term management efforts at
Lake Trafford..." [Staff note: This condition has been addressed in the revised
document. Please note that Policy 4.1.3 has been re-numbered to Policy 5.1.3 in
the revised lAMP.]
Collier County PlanninQ Commission (CCPC) Recommendation:
The Collier County Planning Commission (CCPC) heard this petition on February 16, February
18, March 3, and May 20, 2010, and unanimously recommended (6-0) to forward the subject
petition to the BCC with a recommendation to transmit to DCA, subject to numerous changes
throughout the document which the petitioner has made, and subject to map revisions to identify
the proposed :t:103 acres expansion of the Immokalee Regional Airport. In addition, the CCPC
recommended the addition of language to Policy 6.1.7 to allow Mobile Home use for a specific
existing mobile home park located within the Industrial subdistrict.
Of relevance to the EAC is the request from the CCPC to remove language that would allow
density and intensity blending for properties which are contiguous to Lake Trafford or Camp
Keais Strand which straddle the Immokalee Urban area and the Rural Lands Stewardship Area
Overlay (RLSA). The CCPC expressed concern that the proposed lAMP did not include data
and analysis that assessed the impact that the shifting of density and intensity could have on
the RLSA program.
Additionally. a new Goal was included that would allow the County to prioritize capital projects,
programs, studies, and any other commitments within the proposed plan that are necessary to
further the Goals, objectives, and Policies in the lAMP; identifies potential alternative funding
sources; and allows for the extension of timeframes allocated to fulfill commitments.
Board of County Commissioners (BCC) Recommendation:
The BCC heard this petition at their June 23, 2010 meeting and unanimously approved (5-0) the
subject amendment for transmittal to DCA subject to the following conditions:
6
CP.2008-5 Immokalee Area Master Plan GMP Amendment
1. Deletion of the CCPC's recommended language to Policy 6.1.7. to allow Mobile Home
use for a specific existing mobile home park within the Industrial subdistrict.
2. Inclusion (at Adoption) of companion amendments to the Future Land Use Element and
Map to reflect the removal of the :t103 acres proposed to be added to the Immokalee
Regional Airport.
3. Re-inclusion of language that would allow density and intensity blending for properties
contiguous to Lake Trafford or Camp Keais Strand and which straddle the Immokalee
Urban area and the Rural Lands Stewardship Area Overlay (RLSA). This decision was in
response to a request from a public speaker representing a client that owns lands that
could potentially benefit from this provision. In addition, the BCC requested the public
speaker to provide staff data and analysis that would assess the impact of such
provision on the RLSA program with the intention that, during adoption hearings, the
EAC and CCPC be able to provide the BCC a recommendation of the merits of such
provisions based on the supplied data and analysis. (See attached data and analysis
provided by Wilson Miller Stantec Inc.) Staff maintains that the submitted data and
analysis does not address the effect that the shifting of density and intensity may have
on the acreage caps in the RLSA.
Evaluation and Aooraisal Reoort (EAR) CCPC comments:
The wetland boundary that connects to Lake Trafford/Camp Keais Strand System Overlay
(LT/CKSSO) was adopted as part of the 2007 GMP amendments based on the 2004 EAR. As
part of this change, policies were added to the CCME to increase the native vegetation retention
requirements. Subsequent analysis by staff yields a different, more accurate boundary of this
wetland. At staff request, the petitioner agreed to include the revised boundary as part of this
amendment petition.
As part of the EAR hearings, the CCPC commented that the proposed standards contained
under the 'Wetlands Connected to Lake Trafford/Camp Keais Strand System Overlay" of the
Land Use Designation portion of the plan, references the wetland protection standards set forth
in Policy 6.2.5 of the CCME. However, such CCME Policy does not specify the vegetation
retention requirements thresholds and standards that would apply to the Lake Trafford/Camp
Keais Strand System. The CCPC requested staff to evaluate what vegetation retention
requirements would be appropriate for said system. A CCPC member stated that perhaps the
90 percent requirement of the RLSA lands would be appropriate.
Staff evaluated the request for applying a 90 percent vegetation retention requirement and
which is intended for properties located within the RLSA. A point of contention is the fact that
the development parameters for these lands (density; intensity; and allowed uses) are
intentionally restricted compared to those that apply to properties within the L TCKSS Overlay.
Properties within the L TCKSS are allowed to develop at much higher density and intensity than
the lands within the RLSA. Therefore, such high vegetation retention requirement is illogical
when compared with the allowed development standards for properties within the L TCKSS.
The CCME requires properties within the Urban area to retain a minimum of 25 percent of
vegetation. Lands within the L TCKSS are within the Immokalee Urban Area. However, because
of the high natural value of these lands, staff is of the opinion that the Urban vegetation
retention requirements would not further the intent of protecting these lands.
Staff concludes that a mid-point range of vegetation retention, such as the requirements for
Neutral lands, is the most appropriate for properties within the L TCKSS. Therefore, vegetation
7
CP-2008-5 lmmokalee Area Master Plan GMP Amendment
retention of 60 percent (not to exceed 45 percent of the site) is the appropriate requirement for
properties within the L TCKSS.
Amendments to Policy 6.2.5 of the CCME are necessary in order to implement these
requirements (see attached Exhibit A text.)
DEPARTMENT OF COMMUNITY AFFAIRS (DCA) OBJECTION. RECOMMENDATIONS AND
COMMENTS (ORC) REPORT:
The Objections Recommendations and Comment (ORC) Report is included as part of this
amendment packet, as well as a response letter prepared by the petitioner's consultant (RW A)
with the assistance and input of County staff.
Most notable for the deliberations of the EAC are the following comments:
The ORC Report notes the need to establish meaningful and predictable guidelines and
standards defining the amounts of preservation that would be required to receive the density
bonuses and incentives as outlined in Policy 5.1.1 when a development exceeds the minimum
amount of preservation already set forth in Policy 6.1.1. of the Conservation and Coastal
Management Element (CCME). The revised language proposes that on-site or off-site
preservation exceed the minimum applicable amounts set forth in the CCME Policy 6.1.1 by at
least ten percent, in order to qualify for incentives. In addition, greater levels of incentives may
be provided for greater amounts of preservation through criteria that is to be specified in the
Land Development Code (LDC).
In addition, the ORC comments on the need of meaningful and predictable guidelines and
standards defining the best management practices regarding water quality as a result of
development adjacent to lake Trafford and its surrounding wetlands or natural habitat. The
revised lAMP specifies that best management practices are to conform to those established by
the Department of Environmental Protection (DEP) and the Environmental Protection Agency
(EPA) in order to address Total Maximum Daily loads (TMDl) and nutrient loading.
lastly, the ORC is concerned with the projected demand for and availability of potable water
and sanitary sewer facilities and water supply, based on clear assumptions regarding the
combination of residential and non-residential land uses at the adopted level of service
standards. The revised plan includes additional data and analysis in the short term and long
term of supply and demand of water and sewer facilities. The analysis also includes demand
analysis from maximum potential build-out to account for maximum non-residential build-out
potential.
land use related comments within the ORC include recommendations to establish meaningful
and predictable guidelines and standards defining the intensity of non-residential use for the
different future land use categories. Based on an analysis of existing conditions and growth
projections through the 2025 planning horizon, the revised lAMP proposes a maximum square
footage of 8.45 million square feet for non-residential development for the entire Immokalee
Urban Area, an increase of 3 million square feet above the existing 5 million square feet of non-
residential development.
Other revisions to the lAMP because of the ORC include: the establishment of a maximum of 70
percent of non-residential development within the Commercial-Mixed Use subdistrict; inclusion
of the specific uses allowed within the Immokalee Regional Airport subdistrict; clarification that
the proposed Central Business District is meant to be a zoning district as opposed to a land use
8
CP-200B.5 Immokalee Area Master Plan GMP Amendment
designation; a revised transportation analysis to address short term and long term transportation
concerns and needs.
Revisions to the lAMP to address the ORC include the following:
. Additional text to Policy 5.1 .1
. Additional text to Policy 5.1.2
. A new Policy 6.1.10
. Additional text to the Urban - Mixed Use District
. Additional text to the Urban - Industrial District
. Additional text to the Commercial - Mixed Use Subdistrict
. Additional text to the Industrial - Immokalee Regional Airport Subdistrict
. Additional data and analysis:
o Future Land Use and Nonresidential Potential Analysis
o Zoning and FLUM inconsistencies
o Five and Ten - Year Water and Sewer Availability
o Demand Analysis from Maximum Potential Build-Out
If an Objection set forth in the ORC Report is not adequately addressed when adopted, then the
DCA may find the amendment to be "Not in Compliance" with Florida Statutes, and issue a
Notice of Intent (NOI) to indicate such noncompliance. The County may respond to the ORC
Report in one of four ways at Adoption:
1. not modify the amendment, but provide additional explanation of what the amendment is
about, its purpose, what it will achieve [appropriate if we believe DCA simply does not
understand/has misunderstood the amendment] and/or provide additional data and analysis
to support the amendment; or
2. modify the amendment, so as to address the ORC issue; or,
3. modify the amendment, and provide additional explanation and/or provide additional data
and analysis; or,
4. not adopt the amendment.
STAFF RECOMMENDATION:
Staff recommends that the Environmental Advisory Council forward Petition CP-2008-5 to the
Board of Collier County Commissioners with a recommendation to adopt and transmit to DCA.
9
CP"2008.5 Immokalee Area Master Plan GMP Amendment
PREPARED BY:
CA~ vf~~R'~~'f- PLANNER
Comprehensive Planning Section
Land Development Services Department
Planning & Regulation, Growth Management Division
APPROVED BY:
MIKE BOSl, AICP, COMPREHENSIVE PLANNING MANAGER
Comprehensive Planning Section
Land Development Services Department
Planning & Regulation, Growth Management Division
L!L1AM LOREN, E, DIR eTOR
Land Development Services Department
Planning & Regulation, Growth Management Division
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