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Agenda 03/12/2003 W COLLIER COUNTY BOARD OF COUNTY COMMISSIONERS JOINT WORKSHOP AGENDA March 12, 2003 9:00 a.m. NOTICE: ALL PERSONS WISHING TO SPEAK ON ANY AGENDA ITEM MUST REGISTER PRIOR TO SPEAKING. SPEAKERS MUST REGISTER WITH THE COUNTY MANAGER PRIOR TO THE PRESENTATION OF THE AGENDA ITEM TO BE ADDRESSED. COLLIER COUNTY ORDINANCE NO. 99-22 REQUIRES THAT ALL LOBBYISTS SHALL, BEFORE ENGAGING IN ANY LOBBYING ACTIVITIES (INCLUDING, BUT NOT LIMITED TO, ADDRESSING THE BOARD OF COUNTY COMMISSIONERS), REGISTER WITH THE CLERK TO THE BOARD AT THE BOARD MINUTES AND RECORDS DEPARTMENT. REQUESTS TO ADDRESS THE BOARD ON SUBJECTS WHICH ARE NOT ON THIS AGENDA MUST BE SUBMITTED IN WRITING WITH EXPLANATION TO THE COUNTY MANAGER AT LEAST 13 DAYS PRIOR TO THE DATE OF THE MEETING AND WILL BE HEARD UNDER "PUBLIC PETITIONS". 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 THE PROCEEDINGS IS MADE, WHICH RECORD INCLUDES THE TESTIMONY AND EVIDENCE UPON WHICH THE APPEAL IS TO BE BASED. ALL REGISTERED PUBLIC SPEAKERS WILL BE LIMITED TO FIVE (5) MINUTES UNLESS THE TIME IS ADJUSTED BY THE CHAIRMAN. IF YOU ARE A PERSON WITH A DISABILITY WHO NEEDS ANY ACCOMMODATION IN ORDER TO PARTICIPATE IN THIS PROCEEDING, YOU ARE ENTITLED, AT NO COST TO YOU, TO THE PROVISION OF 1 March 12, 2003 CERTAIN ASSISTANCE. PLEASE CONTACT THE COLLIER COUNTY FACILITIES MANAGEMENT DEPARTMENT LOCATED AT 3301 EAST TAMIAMI TRAIL, NAPLES, FLORIDA, 34112, (239) 774-8380; ASSISTED LISTENING DEVICES FOR THE HEARING IMPAIRED ARE AVAILABLE IN THE COUNTY COMMISSIONERS' OFFICE. e 1. PLEDGE OF ALLEGIANCE e JOINT WORKSHOP WITH THE BOARD OF COUNTY COMMISSIONERS AND PLANNING COMMISSION TO INCLUDE DISCUSSION REGARDING BUILDING HEIGHTS; BUILDING SETBACKS; DENSITY CALCULATION METHODOLOGY INCLUDING DISCUSSION OF SUBMERGED LANDS; THE COASTAL CONSTRUCTION SETBACK LINE (CCSL); BOAT AND BEACH ACCESS REPORT 2003 AND THE ECONOMIC DEVELOPMENT STIMULUS PROPOSAL. ADJOURN 2 March 12, 2003 EXECUTIVE SUMMARY A JOINT WORKSHOP WITH THE BOARD OF COUNTY COMMISSIONERS AND PLANNING COMMISSION TO INCLUDE DISCUSSION REGARDING BUILDING HEIGHTS; BUILDING SETBACKS; DENSITY CALCULATION METHODOLOGY INCLUDING DISCUSSION OF SUBMERGED LANDS; THE COASTAL CONSTRUCTION SETBACK LINE (CCSL); BOAT AND BEACH ACCESS REPORT 2003 AND THE ECONOMIC DEVELOPMENT STIMULUS PROPOSAL. OBJECTIVE: To respond to the Board's direction with respect to conduct a comprehensive review and re-write of the County's Land Development Code (LDC)~ Specifically to present to the Board an overview of building heights, building setbacks, density calculation methodology including discussion of submerged lands, the coastal construction setback line, and an overview of the boat and beach access report and the economic development stimulus proposal. CONSIDERATIONS: Building Height Regulations: Current Planning staffwill present an overview and give examples of the application of the current building height regulations. Building Setback Regulations: Current Planning staff will present an overview and give examples of the application of the current setback (yard) requirements of the Land Development Code, specifically for side yard requirements. Density Calculations: The County Attorney staff and Environmental Services staff will present a summary of issues associated with using submerged lands as part of the density calculation methodology and will discuss issues associated with marine wetlands and density calculation. Coastal Construction Setback Line (CCSL) -Environmental Services staffwill present a history of the CCSL, and will discuss permitting and variance issues and proposals to improve permitting and review. Economic Development Stimulus Proposal - the Community Planning and Redevelopment staff will present an overview of a proposed Economic Development Stimulus program. Boat and Beach Access Report - 2003 - Parks and Recreation staff will present an overview of the Boat and Beach Access Report for 2003. GROWTH MANAGEMENT PLAN: This proposal has no immediate impact on the Growth Management Plan. Staff will ensure that future amendments to the LDC are consistent with the Growth Management Plan and any future changes thereto. FISCAL IMPACT: The estimated cost to conduct a comprehensive re-write of the Land Development Code is the equivalent of 2.5 FTE's for a period of 2 years, at a cost of approximately $260,733. This excludes time and cost associated with amending the Land Development Code as a result of the adoption of the Rural Fringe and Rural and 122003 amendments to the Growth Management Plan, or any amendments associated with the Community Character Plan or any other zoning overlay amendments. It is anticipated that funding for this project will come from Community Development fund (113). RECOMMENDATION: That the Board of County Commissioners consider the information presented by staff and give direction to staff to take action in the form of amendments to the Land Development Code and/or Growth Management Plan which best serve the interests of the public. PREPARED BY: SAN MURRA~R CURRENT PLANNING SECTION DATE REVIEWED BY: DATE APPROVED BY: ~ISTRATOR /~MML~ITY DEVELOPMENT & ENVIRONMENTAL SVCS. MAR 1 2 2003 AGENDA BCC WORKSHOP- MARCH 12, 2003, 9:00 A.M.- 1:00 P.M. TIME. +/- 30 MINUTES +/- 20 MINUTES 10 minute Break +/- 30 MINUTES +/- 30 MINUTES +/- 30 MINUTES +/- 60 MINUTES +/- 30 MINUTES TOPIC 1. Building Height Regulations 2. Building Setback (Side Yard) Regulations 3. Density Calculations and submerged Lands 4. Coastal Construction Setback Line (CCSL) 5. Economic Development Stimulus Proposal 6. Beach and Boat Report 7. Public Comments MAR 1 2 2003 Building Height Regulations Outline of discussion 1. Considerations and rationale A. Urban sprawl B. Aesthetics C. Quality of Life 2. Relevant definitions A. Building B. Building, height of 3. Application of definitions A. Determination of zoning area B. Flood zones C. Proposed construction/use 4. Maximum height limitations illustration 5. Exhibits A. Typical Residential "hip" roof B. Typical commercial "hip" roof C. Typical "gable" roof D. Typical "flat" roof E. Typical "mansard" roof 6. Summary/Conclusions MAR 1 2 2003 Side Yard Setback Regulations Outline of discussion 1. Considerations and rationale 2. Relevant definitions and current code requirements 3. Application of code requirements 4. Exhibits 5. Summary/Conclusions WAR 1 2 2003 Density Calculations Outline of discussion 1. Density Calculations and submerged lands IdAR 1 2 2003 Coastal Construction Setback Line Variance (CCSL) Outline of discussion 1. A brief history of the CCSL 2. The County's role in reviews seaward of the CCSL 3. Types of variance and permits issued seaward of the CCSL 4. How the CCSL can be reviewed differently in different areas of the County 5. Proposals to improve the review process NAR 1 2 2003 Economic Diversification Proposals Outline of discussion 1. Fast-Track Regulatory Process 2. Revolving Loan Program 3. Property Tax Abatement Program 4. Job Creation Grant Program 5. Workforce Development Grant Program 6. Intemet Infrastructure Program MAR 1 2 2003 (1.) FAST-TRACK REGULATORY PROCESS Adopt an ordinance to clearly define and implement a Fast-Track process for targeted industry employers OBJECTIVE: Consider adopting an ordinance that would clearly define and implement the Fast-Track review process as it pertains to targeted industry employers identified by the Economic Development Council (EDC); the ordinance would include a provision for an expedited review of requested design standard deviations and/or variances when applicable. CONSIDERATIONS: In 1997, the Board of County Commissioners recognized economic diversification as one of their top five priorities. With EDC's input, an expedited permitting program was designed and implemented by county staff. However, no ordinance was adopted to formalize this program. Therefore, no formalized expedited permitting program was implemented as originally intended by the Board of County Commissioners. Additionally, the Land Development Code had provided an avenue for certain deviations related to industrially zoned projects. However, the recent LDC amendment deleted this provision. The Fast-Track ordinance would also provide a fast-track deviation/variance process for EDC approved projects, while stressing that projects must still comply with local law, codes, and ordinances. The Fast-Track program will be available to new or expanding firms in pre-approved targeted industries in Collier County that pay 115% of the county's private-sector average wage. Special consideration may be given to firms locating or expanding within the Immokalee Enterprise Zone. For these firms, wages and targeted industry criteria may be waived, but full- time jobs must be created. FISCAL IMPACT: There is no direct fiscal impact associated with this program, except staff time for administering the program and reviewing plans. IMPLEMENTATION: Staff will draft an ordinance that will define and implement the Fast- Track process. Formal implementation of this program would require a simple majority vote of approval from the Board of County Commissioners. TIMEFRAME: If approved by the Commission, a formalized program could be implemented within 90-120 days. MAR 1 2 2003 (2.) REVOLVING LOAN PROGRAM Establish a special revolving fund to assist in the payment of road impact fees, development fees, and/or permitting fees OBJECTIVE: Consider establishing a self-sustaining revolving fund, initially funded with County general revenue funds, that would assist in the payment of road impact fees, development fees, and/or permitting fees as they pertain to specified Economic Development Council (EDC) projects. CONSIDERATIONS: To establish a specialized revolving fund, initially established with monies from general revenue, that would pay impact fees, development fees and/or permitting fees for targeted industry, high wage companies expanding or relocating to Collier County. These fees could include road impact fees, fees charged for the site plan review process, and/or those fees associated with building permit applications. The fund itself will be reimbursed by the annual property taxes paid by this new firm. A first lien could be assigned to the County should the company sell the property prior to the total cost paid back in to the fund. Companies will be eligible for a maximum amount, not to exceed the cost of the fess, and equal to the current millage rate times the amount of the capital investment (includes cost of land and building) multiplied by ten years. The program will be available to new or expanding firms in pre-approved targeted industries in Collier County that pay 115% of the county's private-sector average wage and create a minimum of 10 new jobs. Special consideration may be given to firms locating or expanding within the Immokalee Enterprise Zone, in that a firm will pay 50% of the county's private- sector average wage and create a minimum of five new jobs. Please note that a qualifying firm under this program, as determined by EDC, would not be eligible for any tax abatement programs that may be considered by the county. FISCAL IMPACT: An initial investment by the County of $1 million would be needed to establish the fund. Additional annual funding may be needed until the fund is self-sustaining. Repayment of the fund will be obtained through the collection of the company's property taxes, which will reimburse the fund up to the amount paid out of the fund for the fees. After the company has reimbursed the fund, the property taxes would then revert back to the County. Please refer to the attached spreadsheet, prepared by the Budget Director, showing the cost of the program per taxable value. TIMEFRAME: If approved by the Commission, the Revolving Fee Program could developed and implemented in the county's upcoming fiscal year. IMPLEMENTATION: Upon Board approval, the Economic Development Manager and Community Redevelopment Section Manager will work with the county's Budget and Finance departments to establish the fund and develop the application process. be MAR 1 2 2003 (3.) PROPERTY TAX ABATEMENT PROGRAM Abate County property taxes for 10 years for eligible firms OBJECTIVE: Consider abating a qualifying firm's property taxes, specifically those taxes allocated to the County's operating budget, for ten years, subsequent to all jobs specified being created. CONSIDERATIONS: Abating an eligible firm's property taxes for the first 10 years provides a mechanism to induce new job creation in targeted industries and helps further the mission of economic diversification for Collier County. Those newly created jobs specified by the firm in their application must be in place prior to the abatement of county property taxes. The program will be available to new or expanding firms in pre-approved targeted industries in Collier County that pay 115% of the county's private-sector average wage and create a minimum of 10 new jobs. Special consideration may be given to firms locating or expanding within the Immokalee Enterprise Zone, in that a firm will pay 50% of the county's private- sector average wage and create a minimum of five new jobs. Please note that a qualifying firm under this program, as determined by the Economic Development Council, would not be eligible for any "revolving loan" fee payment program that may be considered by the county. FISCAL IMPACT: For those projects deemed expansions, property taxes on the existing facility will not be abated. However, based on the current millage rate for a 40,000 square foot industrial facility, the County will realize an additional $50,000+ in ad valorem annually, following the abatement period. IMPLEMENTATION: Upon Board approval, the Economic Development Manager and Community Redevelopment Section Manager will work with the county's Budget and Finance departments, along with the Property Appraiser and Tax Collector offices, to develop the mechanisms associated with this program as well as the application process. TIMEFRAME: If approved by the Commission, the Property Tax Abatement Program could be developed and implemented in the county's upcoming fiscal year. MAR 1 2 2003 (4.) JOB CREATION GRANT PROGRAM Establish a grant program to induce the relocation or expansion of high wage companies to Collier County OBJECTIVE: Consider establishing a special fund that would provide grants directly to eligible firms based on new job creation. CONSIDERATIONS: The grant funds would be used by the company for start-up costs or other business expenses such as relocation costs, company sponsored day care facilities, land improvement costs, and/or existing facility improvements or rehabilitation. An eligible firm would be paid directly based on the number of new jobs created within a specified time frame. Those newly created jobs specified by the firm in their application must be in place prior to consideration of payment. Firms will be encouraged to hire Collier County residents, with penalties in place should a company fail to meet its workforce obligation within a specified time frame. The program will be available to new or expanding firms in pre-approved targeted industries in Collier County that pay 115% of the county's private-sector average wage and create a minimum of 10 new jobs, thus qualifying for a $2,000 per job incentive. Special consideration may be given to firms locating or expanding within the Immokalee Enterprise Zone, in that a firm paying at least 50% of the county's private-sector average wage and creating a minimum of five new jobs would be eligible for $3,000 per job. Those firms that also participate in the State of Florida Qualified Target Industry Tax Refund Program would only be eligible for $1,000 per new job created. FISCAL IMPACT: An initial investment by the county of $500,000 would be needed to establish the fund, plus additional funding for subsequent years. A dedicated source of revenue will be identified by county staff for subsequent years. IMPI,EMENTATION: Upon Board approval, the Economic Development Manager and Community Redevelopment Section Manager will work with the county's Budget and Finance departments to develop the mechanisms associated with this program as well as the application process. TIMEFRAME: If approved by the Commission, the Job Creation Grant Program could be developed and implemented within the county's upcoming fiscal year. AGENDA ITEM MAR 1 2 2003 (5.) WORKFORCE DEVELOPMENT GRANT PROGRAM Establish a Training Grant program for companies locating or expanding in the Immokalee Enterprise Zone OBJECTIVE: Utilizing Community Development Block Grant Funds (CDBG), consider establishing a grant program for firms locating to, or expanding in, the Immokalee Enterprise Zone, based on new job creation, to be used for the reimbursement of training costs. CONSIDERATIONS: Up to $100,000 in CDBG funds could be set aside from the program's Public Services cap, to reimburse firms for training expenses for new employees, or re-training existing employees, for newly created positions in companies located within the Immokalee Enterprise Zone. CDBG funds must be used to assist those local residents who are at 80% or below the county's median household income. An eligible firm would be paid directly based on the number of new jobs created within a specified time frame. Those newly created jobs specified by the firm in their application must be in place prior to consideration of reimbursement. The program will be available to new or expanding firms in pre-approved targeted industries that locate within the Immokalee Enterprise Zone. A company paying 50% of the county's private-sector average wage qualifies for a $1,000 per job incentive; paying 75% of the average wage qualifies a firm for $2,000 per job; and companies paying 100% or more of the county's private-sector average wage qualify for $3,000 per job. FISCAL IMPACT: Collier County is considered an Entitlement Community by the U.S. Department of Housing and Urban Development (HUD), receiving approximately $2.6 million in CDBG funds annually. A portion is set aside for administration purposes by the Financial Administration and Housing Department (FAH), while the remaining funds have historically been granted on a competitive basis to non-profit entities throughout the County. Discussions have been held with the Department Director and the CDBG Manager regarding this program, and both support this proposal. IMPLEMENTATION: Upon Board approval, the Economic Development Manager and Community Redevelopment Section Manager will work with FAH staff to develop the mechanisms associated with this program. TIMEFRAME: The CDBG funding cycle begins in September 2003, with awards made 12 months later. If approved by the Commission, the Workforce Development Training Grant Program could be implemented in Fiscal Year 2004/05. ~A rr~ MAR 1 2 2003 (6.) INTERNET INFRASTRUCTURE PROGRAM Encourage installation of advanced digital internet infrastructure for specified new or existing facilities OBJECTIVE: Consider establishing a program to encourage installation of advanced digital interact infrastructure for new commercial/industrial buildings, or those being renovated, deemed to be "smart buildings". CONSIDERATIONS: As firms consider Collier County for relocation or expansion purposes, advanced interact connectivity has become a crucial component in their day-m-day business operations. The program would allow eligible firms that install advanced digital infrastructure, such as fiber optic or wireless systems, to deduct the cost of the system from their local property taxes until the cost of the upgrade has been recovered, up to a pre-determined maximum amount. The program will be available for any new building or renovation of an existing building in Collier County designated a "Smart Building", as identified by criteria established by the County and the Economic Development Council. FISCAL IMPACT: To be determined IMPLEMENTATION: Upon Board approval, the Economic Development Manager and Community Redevelopment Section Manager will work with the Budget office to develop the mechanisms associated with this program. TIMEFRAME: If approved by the Commission, the program could be implemented during the next fiscal year. MAR 1 2 2O03 2. 3. 4. 5. 6. 7. 8. Boat and Beach Access Report Outline of discussion Objective Supply and Demand Levels of Service Beach Access Other Recreation Planned Capital Improvements Fiscal Option Conclusions I,,4AR 1 2 2003 BOAT AND BEACH ACCESS REPORT 2003 MAR 1 2 2OO3 Collier County BOAT AND BEACH ACCESS REPORT 2003 OBJECTIVE The purpose of the Boat and Beach Access Report is to assess Collier County's performance in providing beach access and boat launch facilities to County residents and visitors. This report will identify the overarching complications involved with providing beach access and boat launch services that keep up with growth, examine current level of service standards adopted by Collier County and the recreation industry, inventory current facilities and update the 1999 Report with regard to options and inventories, and suggest furore options for expansion of services and facilities. SUPPLY AND DEMAND While the Gulf of Mexico is a vast but not unlimited resource for water-dependent recreation, limited access to it limits the population's ability to use it. Sandy beach, on the other hand, is a finite recreational resource even further limited by the constraints of access and available parking. Collier County's population continues to grow, but its miles of sandy beach are fixed. The challenge is to provide expanding access to beaches and waterways, including the attendant requisite parking, without exceeding the carrying capacities of the resources and thereby decreasing their desirability and worth. The decreasing availability and increasing cost of land that comes with growth exacerbate this issue. The more access is needed, the more difficult it is to find and afford. LEVELS OF SERVICE The Collier County Growth Management Plan outlines level of service standards (LOSS) for parkland in three categories: facilities value, community park acreage, and regional park acreage. Beach, beach parking, and boating access acreage are currently included the regional park acreage measure for purposes of comprehensive plan concurrency. The 2001 Annual Update and Inventory Report projects satisfaction of regional park acreage LOSS through 2009 based on acreage acquisitions planned in CIP through 2004. Satisfaction of comprehensive plan acreage standards, however, will not maintain the levels of service Collier County residents and visitors cun'ently enjoy with regard to beach and boating access. This is because the comprehensive plan requires no distinction between regional park acreage located inland or developed to serve other functions and acreage reserved for beach and water access. To understand the expectations of the population an examination of the levels of service they have been experiencing is necessary. Boat Ramps Currently 27 boat ramp lanes serve boaters countywide. The Parks and Recreation Department maintains eleven of these lanes; City or State government provides seven; - AGENI~A No. HAR Collier County Boat and Beach Access Rep( 2003 2 and nine are privately owned but open to the public. Table 1 below outlines the locations and amenities of these facilities. Table 1. Boat Ramp Facilities Available to the Public Twenty-one thousand vessels were registered in Collier County in 2002. Less than 6000 wet slips and less than 3000 commercial dry storage spaces are available to house them. As a result, at least 12,000 vessels countywide are dependent on boat ramps for water access. At an average of 20 launches per vessel per year, countywide facilities should be able to accommodate 240,000 launches per year to meet demand. Spread across the 27 boat ramp lanes available, facilities will average 8,889 launches per year, or 24 launches per day. This figure is in accordance with the recommendation of the Florida Statewide Comprehensive Outdoor Recreation Planning Guide of 2000, which suggests that a single boat ramp lane can accommodate 36 launches per day (20 minutes total put- in and pull-out time over a 12-hour period). These calculations are ideal numbers, however, and do not provide for peak use times such as weekends and holidays or for any boats trailered in from outside of the county. The Florida Statewide Comprehensive Outdoor Recreation Planning Guide recommends that average peak use be calculated as follows: Total user occasions are multiplied by 55 percent and divided by 111. This formula is derived from state park attendance, where 55 percent of the total annual attendance occurred over 111 days (52 weeks times two weekend days plus seven weekday holidays). Average weekend and holiday use for Collier County's boat ramp-dependent vessels then is 1189 launches, or 44 launches per lane per day. To meet the recommended carrying capacity of 3{ launches ACtA ITEM Collier County Boat and Beach Access Re ,rt 2~R ~ 2 2003 per lane per day on an average weekend or holiday Collier County needs an additional six boat ramp lanes countywide. The growth of boating countywide is a further consideration with regard to the level of service County boaters can expect to experience. The number of registered vessels in the county has grown steadily at 1000 boats per year over the past six years. Currently few solutions exist for finding homes for these additional boats in dry storage or slips. They will most likely become ramp users, too. At 20 launches per year they will require an additional 55 launches each day or 99 launches on an average weekend day. This translates to a need for an additional two boat ramp lanes per year for as long as this growth rate is sustained in order to maintain the levels of service County boaters currently enjoy. Table 2 projects boat ramp lane deficiencies for the next ten years. Need Table 2. Pro ection of Boat Number of Number of Number of ramp Ramp lane registered wet/dry slips lanes countywide deficit vessels 'l' annual increase of 180 wet slips per year for 2002 to 2007, based on an average of the number of permits issued by Collier County over the last four years; reduced to 120 per year for 2008 to 2012, anticipating stronger environmental law and decreased availability of undeveloped waterfront property :1: increase of 350 dry slips based on proposed development of Hamilton Harbor * 3-lane increase based on planned development of the Pulling property by the City of Naples ** 2-lane increase based on the planned development of Goodland Boating Park by Collier County Observation reveals, however, that where Collier County-mn boat ramps are concerned 36 launches per lane per day offers a generous launch and retrieval time, and County boat ramp users can potentially significantly maximize a ramp's capacity with efficient usage. The problem resides not in the carrying capacity of the ramp but of the parking area. Table 3 illustrates the dearth of parking available at some County facilities. Bayview Park, for example, according to the standard could accommodate 72 launches per day, but offers only 16 trailer parking spaces. Weekends see Bayview ramp users parking along the roadside as far as a mile away from the park. Because the County recently adopted a policy to charge a launch fee instead of a parking fee, boaters who must walk significant distances fi.om and to their vehicles are still required to pay $3 to use the facility. Table 3. Parkin )ace Deficit Boat Launch Facilities Collier County Boat and Beach Access Report MAR 1 2 2003 An additional consideration with respect to boating is access to fresh water. Currently only Lake Trafford is officially available for freshwater boating, although a considerable mount of boat traffic finds its way to the canal system. More access to fresh water may alleviate some of the burden on existing facilities and, as the County population grows, may become an increasing demand in its own right. Baaoh Aecass The State of Florida recommends a distance of one half-mile between sites for the spacing of beach access points at state-financed beach restoration projects. Collier County beaches offer a wide range of choices with regard to the frequency of access points along its beaches. In general, State and County beach parks have more sparsely spaced access points to maintain lesser density and a more natural beach environment and experience. The City of Naples, on the other hand, maintains 34 of its 37 access points within a five-mile stretch of beach, allowing for a more urban beach experience. County residents and visitors are well served by this variety, but to keep up with growth the County should continuously seek ways to improve access, amenity, and parking at its beaches. Table 4 is a summary of the public access available along the county's shoreline, from north to south (facilities operated by Collier County Parks and Recreation are highlighted): Table 4. Public Access Along Collier County Shoreline Linear I Description I ParkingI Amenities feet I / / .... ~ 1 Lely Barefoot 7100 I private residences, 63% Inaccessible to~ 0 I none Beach : :blic* ~ ~ ~ Development / the gan ral p Delnor-Wiggins ~9'~i~0-' I ;i 60 acres of p'"' re~erved area amenities I 350 interpretive programs, I ~ I picnic areas, S~te Recreation ~ I I n ssio , s.owo , Area ~ / I rest moms I Pelican Bay 12,000 Collier ~un~ owns some the shoreline I 0 ~ none Development pmpe~, the rest is private; 89% ~ inaccessible to the ~eneral public* ~ HAR 1 2 2003 Collier County Boat and Beach Access Repod 2003 Park Shore 3 City of Naples accesses are available see none Accesses amid North Gulf Shore condominiums below City of Naples 34 accesses stretch from north of The 1122 variable Accesses Beach Club to 32nd Avenue South; total Lowdermilk Park and accesses near Naples Pier offer full amenities; select others have showers and foot showers Island water access only 0 none Hideaway Beach 5280 private residences and condominiums, 0 none Development 75% inaccessible to the general )ublic* Marco Island condominiums, hotels, 80% inaccessible )ublic* 0 none * Accessibility calculated by subtracting ¼ mile from the total linear footage for each contiguous publicly accessible beach. Even more than for boaters, a beachgoer's enjoyable day at the beach is only as attainable as the nearest available parking space. In the last three years Collier County has added 93 beach parking spaces to its inventory: 80 at Conner Park (which allow for access to Delnor-Wiggins State Recreation Area or Vanderbilt Beach) and 13 at North Gulf Shore Access. Total spaces at County beaches with the completion of the North Gulf Shore project will be 1179. Spaces at City of Naples and State of Florida beaches have remained static at 1122 and 350, respectively. Table 5 outlines the number of beach parking spaces per capita in season over the past three years and projected for the next ten. Even with the recent additions, available parking is not keeping pace with growth. This year Collier County's population will exceed the 1:150 space-to-resident ratio recommended by the Parks and Recreation Advisory Board in 1999. Table 5. Projected Beach Parking Space Need Year Population Number of Ratio Parking space deficit parking sp~ces 2003 401,536 2651 1:15t 26 Collier County Boat and Beach Access Rep MAR 1 2 2003 The 1:150 space-to-resident ratio was established as a goal by comparing the number of public parking spaces to the seasonal population of the county. To retain the validity of the standard the same formula has been used in the table above. However, a number of considerations improve the outlook where the County's ability to provide sufficient parking for beach access is concerned. For example, the areas listed in Table 4 as partially inaccessible to the general public nonetheless do serve a portion of the population. Those people who live in the appropriate areas and/or purchase the required memberships are served by accesses and parking at such semiprivate beaches. The organizations that manage these beaches are able to provide a higher level of service to their constituents than the general public enjoys. Pelican Bay, for example, provides 174 parking spaces for 8600 units. That's a 1:123 space-to-resident ratio assuming 2.5 residents per unit. Marco's Residents Beaches offer a total of 390 spaces for 6654 dwelling units, or 1 space for every 42 residents. Nonetheless the managers of both areas attest that their facilities are inadequate during peak use times, and both have taken steps to improve their service. Pelican Bay is expanding its parking facilities, while Residents Beach restricts guest parking on weekends during season. Additionally, thousands of residences in Collier County are west of Lely Barefoot Boulevard, Gulf Shore Drive, Gulf Shore Boulevard, Gordon Drive, and Collier Boulevard. The people who live in those residences do not need parking accommodation because they live within walking distance of the beach. The recent introduction of the Collier Area Transit System may be relieving some of the burden on beach parking for inland dwellers. Current routes take riders as far west as 6th Street in downtown Naples, which would give a beachgoer a six-block walk to his destination. The County should pursue expanding CAT service to local beaches, as will be discussed in greater detail in the Recommendations section of this report. Other Recreation A final topic in assessing the County's levels of service with regard to beaches and boating is the introduction of alternative recreational activities. Sugden Regional Park is home to the 60-acre Lake Avalon, which supports a swimming beach and opportunities to participate in non-motorized boating such as sailing, canoeing, kayaking, and paddle boating. Clam Pass Park and Barefoot Beach Preserve offer canoe launches. Future plans also call for a non-motorized vessel launch at the bridge at State Road 92. Upon completion of North Naples Regional Park residents and visitors can enjoy a first- class water park with slides, a lazy river, and children's activity pools--a perfect alternative to the beach for cooling down on a hot day. The existing Golden Gate Aquatic Center and small water park at Vineyards Community Park provide more choices, as well. The County should continue to diversify the recreational activities it offers. Variety builds the participant base and alleviates the burden on traditional resources such as beaches. PLANNED CAPITAL IMPROVEMENTS Many of Collier County's Parks and Recreation facilities are relatively new, and few to date have required extensive renovations. As these facilities age and the burden of use--or overuse if new facilities are not constructed--accumulates, renovations to Collier County Boat and Beach Access Report 03 AGE. I~TN~A ITE~4 1 2 2003 existing facilities will become an increasing demand on capital expenditures. Meanwhile the county's population will continue to grow and demand for new facilities will remain. Balancing the need to sustain or improve existing facilities and add new ones will be a mounting challenge in the future. The mix of renovation and construction as a destination for capital dollars is reflected already in the following boat ramp and beach access projects, all of which are incorporated in the five-year Capital Improvement Plan: Bayview Park Renovation and Dredging Renovations will include an additional dock and renovations of the existing dock and fish-cleaning tables. Funding through a Florida Recreation Development Assistance Program grant is secured for up to $120,000. A fifty percent match is required; $75,000 is approved for FY 03. The balance of the match will be made up from reserves or through in-kind services. Dredging will constitute a separate project, for which $100,000 is approved for FY 03. Gulf Shore Drive Beach Accesses Improvements The six accesses along Gulf Shore Drive at Vanderbilt Beach will be refurbished over several years. Improvements at Bayview Drive are approved for $125,000 of TDC funding for FY 03. Collier Boulevard Boating Park Expansion and Overflow Parking Expansion to the north will add an additional 47 trailer parking spaces. A second phase of expansion to the south may add an additional 28 trailer parking spaces. Lease of and improvements to a parcel of land across CR 951 may supply additional overflow parking spaces. This will be a multiyear project for which $600,000 is approved for FY 03 and $600,000 is planned for FY 04. Lake Trafford Park Improvements Improvements will be the installation ofriprap around the water bank and repairs to the pier. Planned funding is $75,000 in FY 04. Land Purchase for Shuttle Parking The Department will pursue purchasing land along the US 41 corridor to develop for parking in conjunction with a CAT beach shuttle service. Proposed funding is $2,000,000 in FY 04. Cocohatchee River Park Seawall and Dock Repair Seawall and dock repair is proposed for FY 04 at a cost of $100,000. Caxambas Park Seawall Repair and Landscaping Seawall repair and landscaping projects are proposed for FY 05 at $60,000 each. Goodland Boating Park Development Park development will include two boat ramp lanes and 50 to 75 trailer parking spaces as well as a neighborhood park. This multiyear project is scheduled for master planning at $100,000 in FY 06 and Phase I development at $1,000,000 in FY 07. AGE..N~A ITEM Collier County Boat and Beach Access Re oft 2~R 1~ 2 2003 RECOMMENDATIONS Staff recommends the following general principles guide the County's decisions with regard to maintaining and expanding boat launch and beach access facilities: · Standards set by the Florida Statewide Comprehensive Outdoor Recreation Planning Guide or comparable industry guidance tools should be adhered to whenever practicable. · Estimates of carrying capacities and levels of service should always take into consideration peak use times and seasonal populations. · All new boat ramp and beach access facilities should be developed with adequate parking as a primary goal. · Improvement upon the current level of service for boat launch facilities should be a goal of the County. · Maintenance of the 1:150 parking space-to-resident ratio for beach access should be a goal of the County. · A more even distribution of impact on County beaches through an increased frequency of access points should be a goal of the County. · Creation of a system for more countywide comprehensive planning with regard to boat launch and beach access facilities should be considered. · The County should consider the purchase of available properties that would be suitable locations for boat ramps. · The County should consider the purchase of available properties that would be suitable locations for beach access and beach parking. More specifically, the following are areas where Collier County can maintain or improve its services to residents and visitors by expanding their access to open water and the beach: Lake Access at Heritage Bay In its review of the Heritage Bay Development of Regional Impact, the Parks and Recreation Department has requested that the developer, US Homes, provide one hundred acres and access to one of the lakes within the area to offset the added strain on existing park facilities that the development will create. Access to Golden Gate Canals Issues regarding recreational use of the Golden Gate canal system are currently under review by the County Attorney's office. Currently an opporttmity exists to purchase a parcel of land at the terminus of 5 8th Street, which could be developed to provide canal access. Bayview Park The County should consider purchasing available residential lots along Danford Street to be used for overflow trailer parking. The Parks and Recreation Department requested additional parking from the Hamilton Harbor Development of Regional Impact, and in original plans fifteen spaces were provided. However, the most recent plans for th~ Hamilton Harbor marina do not provide the requested spaces. Aara7~, ~xraa Collier County Boat and Beach Access Report 1003 I~1~I~ 1 2 2003 Shell Island Road Boat Ramp The Florida Department of Environmental Protection at Rookery Bay is interested in purchasing the boat ramp facility at the end of Shell Island Road from the Conservancy of Southwest Florida. DEP would then consider selling or leasing the ramp to Collier County in exchange in part for funding to pave Shell Island Road. Improvements to the facility would be necessary, and possession is preferred over lease holding. Everglades National Park The master plan for Everglades National Park includes a boat ramp. The facility has yet to be built because demand did not appear high enough and funds have not been available. An opportunity exists for the County to partner with the national parks system to see this facility to fruition. Barefoot Beach Preserve Not exceeding the carrying capacity of this park is a primary objective because of its status as a nature preserve. Some current uses raise concern. For example, excursion vessels frequently drop off visitors at the southern tip of the park. This practice is damaging to the fragile ecosystem at Wiggins Pass. A dock and pier are planned for the inland side of the island to accommodate waterborne visitors while protecting the beach and dunes. This area will also allow Preserve visitors a better look at the mangrove habitat, which presently is only accessible by canoe. Educational programs and signage will accompany the facility. Another concern is visits to the park by excursion buses. The parking fee of $4 per vehicle per day was established in part to encourage carpooling, but a $4 entrance fee for a full busload of visitors is not financially comparable to the amount of impact such a group has on the park. An increased fee for vehicles transporting over eight passengers as is charged at State facilities should be considered. Vanderbilt Beach Area Conflicting sentiment surrounds the future of the Vanderbilt Beach area. Resident outcry prompted the current moratorium, but preliminary investigation reveals that the process of change that residents sought to hold in abeyance may be too far underway to be prevented. While a more equitable distribution ofbeachgoers along the entire Gulf front should be a primary goal of the County, Vanderbilt Beach is currently the most viable locus for improving beach access. The possibilities are as follows, addressed from north to south: Officials at Delnor-Wiggins State Recreation Area advise that parking at that park does not accommodate the full carrying capacity of the facility. The State should install an additional 180 parking spaces, equal to the additional 500 beachgoers the facility can hold. The Parks and Recreation Department developed Conner Park on Bluebill Avenue with future plans of securing a beach access point between Delnor-Wiggins State Recreation Area and the Vanderbilt Inn. Eighty parking spaces are available to serve an access that as yet is not forthcoming. To the north, the State so far has been unwilling to grant an access easement in exchange for improvements at Delnor-Wiggins. To the south? - AGENDA If-I:Jd Collier County Boat and Beach Access Re rt 2011~RI0I 2 2003 plans to renovate the Vanderbilt Inn are mired in the current moratorium. The owners wish to convert the hotel to condominiums, and the County was going to exchange a small setback variance for a public beach access. This deal may still go through once the moratorium is lifted. A more equitable distribution ofbeachgoers along Vanderbilt Beach itself is called for to reduce the burden on Vanderbilt Beach Park. To this end, refurbishments will be made to the six walkway easements along Gulf Shore Drive. However, these renovations will not greatly improve the usefulness of the accesses unless closer parking or shuttle service accompanies them. The County should consider the purchase of available lots along this portion of Gulf Shore Drive to be used for parking. See also the transportation recommendation below. A two-story, 400-space parking garage is planned for Vanderbilt Beach Park. This project is currently delayed by litigation in which Collier County is suing WCI developers over deed restrictions on the site. Resolution of the issue and completion of the project remains a recommendation of staff. Land Development Code Provisions Currently, staff conducts negotiations for allowances for public access on a case-by-case basis as coastal properties are developed or redeveloped. These deals are then approved by the Board along with the development or redevelopment plan for the site. A more formalized system to provide for these exchanges should be codified through the Land Development Code. The substance of the trade should be based on quantifiable characteristics, such as number of units developed or refurbished or acreage involved. The remuneration would likewise need to be pre-established, as a given number of parking spaces, rest rooms, feet of easement, or acres of land. The system would ensure that the amount of public benefit would be commensurate for each case of private gain. Tigertail Beach The tidal lagoon at this park is now almost completely enclosed. A boardwalk connecting the mainland to Sand Dollar Island may be necessary in the future to allow visitors tree Gulf-front access. The Parks and Recreation Department has secured funding to study the feasibility of this endeavor. Transportation Shuttle Service Because the purchase of land west of US 41 is often cost prohibitive, the County should consider providing beach access through a shuttle service. The existing CAT system should be expanded to include more stops near beach accesses. The County should consider the purchase of appropriate available lots along the US 41 corridor to be used for parking in conjunction with shuttle service to Vanderbilt, North Gulf Shore, and Clam Pass Beaches. Bus loading and unloading lanes along Gulf Shore Drive would increase the amenity of the six walkway easements along Vanderbilt Beach. FISCAL OPTIONS Improving levels of service for beaches and boat ramps will be a costly affair. The 2002 Park Impact Fee Update on which Parks Impact Fees are currently based calculated beach parking acreage at $875,000 per acre based on the value of one acre or large AC.,ENDA IIEM Collier County Boat and Beach Access Report 003 M~R I 2 2003 commercial parcels west of US 41 in the vicinity of Vanderbilt Beach. Development of such a parcel into a beach parking facility consistent with County code would yield approximately 60 parking spaces per acre at $1000 per space. The Impact Fee Update assigned a cost per acre of $1,350,000 to beach and boating access land, based on the recent purchase of parcels at Barefoot Beach and Goodland. Development of the Goodland property with two boat ramp lanes, parking, and minor other recreation facilities is estimated to cost $1,500,000. Funding sources for these projects are limited. Current budgets suffice for maintenance and minor improvements to existing facilities, but acquisition and development projects of a magnitude that will keep pace with growth will require millions more. Over the next five years a significant portion of Parks Impact Fees are dedicated to development of regional and community parks. Boater Improvement Funds and boat registration fees should be used for capital improvements to launch facilities, but they too are earmarked for necessary expansions and renovations to existing ramps over the next several years. Grant revenues are a consistent but not munificent source of funds, accounting for about $200,000 per year in capital improvement dollars. The most appropriate available source of funds for purchase and development of additional boat ramp and beach access facilities is tourist development money. If the Board of County Commissioners agrees with the recommendations of this report, then the Tourist Development Council should consider increasing the Parks and Recreation line item within the TDC budget to address these issues. This use of TDC funds is clearly within the parameters set forth for their use and is consistent with the Growth Management Plan, as well. Unfortunately, Conservation Collier funds will seldom be appropriate for the types of projects described here. Little undeveloped coastal land that would be suitable for beach access and boat ramps remains, and in most cases these uses would create a greater impact on the parcels than is the intention of the Conservation Collier program. CONCLUSION In summary, the levels of service that today's residents and visitors enjoy are currently adequate for beach parking but under the established standards for boat launches. Over the next ten years, continued growth will significantly lessen the levels provided unless new public beach parking and boat launching facilities are developed. As existing facilities age, competition for capital dollars between renovation projects and development projects will intensify, and current funding levels are already too low to allow for significant expansion of the beach access and boat launch network. Collier County Boat and Beach Access Re nC,~.NOA ~ 1 2 200