Agenda 11/07/2017 WCOLLIER COUNTY
Board of County Commissioners
WORKSHOP AGENDA
INFRASTRUCTURE SALES SURTAX WORKSHOP
HURRICANE IRMA AFTER ACTION WORKSHOP
Board of County Commission Chambers
Collier County Government Center
3299 Tamiami Trail East, 3rd Floor
Naples, FL 34112
November 07, 2017
9:00 AM
Commissioner Penny Taylor, District 4 - BCC Chair
Commissioner Andy Solis, District 2 - BCC Vice-Chair
Commissioner Donna Fiala, District 1; CRAB Co-Chair
Commissioner Burt Saunders, District 3
Commissioner William L. McDaniel, Jr., District 5; CRAB Co-Chair
Notice: All persons wishing to speak must turn in a speaker slip. Each speaker will receive no more than three (3) minutes.
Collier County Ordinance No. 2003-53 as amended by Ordinance 2004-05 and 2007-24, 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.
1. PLEDGE OF ALLEGIANCE
2. WORKSHOP TOPICS
2.A. Infrastructure Sales Surtax Workshop
2.B. Hurricane Irma After Action Workshop
3. PUBLIC COMMENTS
4. ADJOURN
Inquiries concerning changes to the Board’s Agenda should be made to the County Manager’s Office a t
252-8383.
11/07/2017
COLLIER COUNTY
Board of County Commissioners
Item Number: 2.A
Item Summary: Infrastructure Sales Surtax Workshop
Meeting Date: 11/07/2017
Prepared by:
Title: Operations Analyst – County Manager's Office
Name: Geoffrey Willig
11/01/2017 4:13 PM
Submitted by:
Title: County Manager – County Manager's Office
Name: Leo E. Ochs
11/01/2017 4:13 PM
Approved By:
Review:
County Manager's Office Geoffrey Willig County Manager Review Completed 11/01/2017 5:13 PM
Board of County Commissioners MaryJo Brock Meeting Pending 11/07/2017 9:00 AM
2.A
Packet Pg. 3
MEMO
Date:
To:
From:
Subject:
Co Lier County
Office of the County Manager
November 1, 2017
Board of County Commissioners
Leo E. Ochs, Jr., County Manager� -D
�
Alternative Funding Review (Infrastructure Sales Tax)
Over the past year, the Greater Naples Chamber of Commerce has explored the viability
of alternative supplementary funding for several key focus areas. Additionally, and
concurrently, environmentally sensitive land conservation advocates also sought specific
funding to restart the land acquisition program through Conservation Collier. These
efforts also coincided with Collier County's efforts to consider a storm water utility to
fund deferred storm water maintenance and capital, as well as, planned debt service for
long term infrastructure needs such as roads, buildings, and parks.
The Board has considered and deliberated these needs through various agenda items,
workshops, and budget hearings. Through these discussions, the Board directed staff to
schedule a workshop to discuss these issues to evaluate the option of a voter referendum
for the sales tax. The needs list attached to this item reflects categories identified by the
Chamber, environmental preservation advocates, and County staff that could benefit from
additional alternative funding. The categories include:
Land Acquisition• Transportation & Storm Water Facilities• Public Safety and General
Purpose Government Facilities Renovations and Repairs• Parks• Affordable Housing•
Workforce Training• Mental Health Facilities• Beach Resiliency• Hurricane
Mitigation Upgrades
The presentation attached contemplates a seven-year sales tax. The levy of a one cent
sales tax is estimated to generate approximately $70,000,000 annually. Approximately
$10,000,000 of that would be split between the cities. The available balance would total
approximately $420,000,000, with an anticipated earmark for strategic and sensitive land
acquisition of $150,000,000. This would provide approximately $270,000,000 for the
remaining categories.
2.A.1
Packet Pg. 4 Attachment: MEMORANDUM Alternative Funding Review (Infrastructure Sales Tax) (4087 : Infrastructure Sales Surtax Workshop)
2.A.1
Packet Pg. 5 Attachment: MEMORANDUM Alternative Funding Review (Infrastructure Sales Tax) (4087 : Infrastructure Sales Surtax Workshop)
2.A.2
Packet Pg. 6 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 7 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 8 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 9 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 10 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 11 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 12 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 13 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 14 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 15 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 16 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 17 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 18 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 19 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 20 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 21 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 22 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 23 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 24 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 25 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 26 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 27 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 28 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 29 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 30 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 31 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 32 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 33 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 34 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 35 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 36 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 37 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 38 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 39 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 40 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 41 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 42 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 43 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 44 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 45 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
Local Option Infrastructure Sales Tax
•All 67 Florida Counties are eligible to levy this tax; 61 counties have a surtax
•Referendum required countywide and tax proceeds must be shared between the county and municipalities within the county generally through inter-local agreement
•Uses include finance, plan and construct infrastructure; acquire land for public recreation, conservation or natural resource purposes; portion of proceeds (up to 15%) may be used to fund certain economic development activities
•Tax is bondable depending upon the length tax is imposed
•Tax is limited to 1 percent or ½ percent; 1 percent tax generates about $70 million annually, $60 million net to the County
•Regressive nature of a sales tax is generally reduced here by statute considering that the tax does not apply to food and medicine and limited to the first $5,000 of a purchase
•Duration of tax set by referendum
•Also paid by consumers shopping in the County including the 100,000 or so visitors and seasonal residents
•Cannot be used for O&M
2.A.2
Packet Pg. 46 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 47 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 48 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 49 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 50 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
2.A.2
Packet Pg. 51 Attachment: Sales Surtax Presentation Final [Revision 1] (4087 : Infrastructure Sales
Alternative Funding 7 Years
Potential Project List
Transportation Estimated Cost % of Total
Airport Rd - widening form Vanderbilt to Immokalee $17,000,000 2%
Bridge Replacements (11) $23,000,000 3%
New Bridges - Golden Gate Estates Mobility (11) $88,000,000 10%
Pine Ridge Rd, Livingston Rd, & Whippoorwill Ln $31,000,000 3%
Randall Intersection $14,000,000 2%
Vanderbilt Beach Rd Extension - Collier Blvd to 8th/16th $100,000,000 11%
Triangle Blvd $6,000,000 .7%
Sidewalks $10,000,000 1%
$289,000,000 32%
Stormwater
Capital Projects $105,000,000 12%
Swale Maintenance $83,000,000 9%
$188,000,000 21%
Public Services
DAS Shelter Improvement/Replacement $6,000,000 .7%
Big Corkscrew Island Regional Park $60,000,000 7%
$66,000,000 8%
Sheriff’s Office/Jail
Forensic/Evidence Building $33,000,000 4%
Sheriff’s Office Repairs at various locations $4,000,000 .5%
Jail Renovations $5,000,000 .6%
Jail HVAC Replacement & Kitchen Renovation $3,000,000 .3%
$45,000,000 5%
Program and Capital Projects
Courthouse Repairs $3,000,000 .3%
Roofing various facilities $3,000,000 .3%
HVAC various facilities $33,000,000 4%
General Building Repairs various facilities $11,000,000 1%
Fire/Alarms/Line Safety various facilities $2,000,000 .2%
Painting various facilities $1,000,000 .1%
$53,000,000 6%
Miscellaneous Needs
Strategic and sensitive land acquisition $150,000,000 17%
Workforce Housing/Irma Housing Recovery $10,000,000 1%
Workforce Training Center $10,000,000 1%
Mental Health $10,000,000 1%
Beach Resilience $50,000,000 6%
Hurricane Resilience (Generators/ Hardening Shelters/
Fuel Facilities) $25,000,000 3%
$255,000,000 28%
Total Cost $896,000,000 Current Funding $163,500,000 Shortfall $732,500,000
2.A.3
Packet Pg. 52 Attachment: Collier County Project List (4087 : Infrastructure Sales Surtax Workshop)
Office of Economic and Demographic Research
2017 Local Discretionary Sales Surtax Rates in Florida's Counties
Maximum Maximum
Potential Current Unutilized Potential Current Unutilized
County Tax Rate Tax Rate Tax Rate Tax Rate Tax Rate Tax Rate
Alachua 0.5 3.5 0.5 3.0 0.5 0.0 0.5
Baker 1 2.5 1.0 1.5 0.5 0.0 0.5
Bay 0.5 3.0 0.5 2.5 0.5 0.5 0.5 0.0
Bradford 1 2.5 1.0 1.5 0.5 0.0 0.5
Brevard 0.5 3.0 0.5 2.5 0.5 0.5 0.5 0.0
Broward 3.0 0.0 3.0 0.5 0.0 0.5
Calhoun 1 2.5 1.0 1.5 0.5 0.5 0.5 0.0
Charlotte 1 3.0 1.0 2.0 0.5 0.0 0.5
Citrus 3.0 0.0 3.0 0.5 0.0 0.5
Clay 1 3.0 1.0 2.0 0.5 0.0 0.5
Collier 2.0 0.0 2.0 0.5 0.0 0.5
Columbia 1 3.0 1.0 2.0 0.5 0.0 0.5
DeSoto 1 0.5 2.5 1.5 1.0 0.5 0.0 0.5
Dixie 1 2.5 1.0 1.5 0.5 0.0 0.5
Duval 0.5 0.5 3.0 1.0 2.0 0.5 0.0 0.5
Escambia 1 3.0 1.0 2.0 0.5 0.5 0.5 0.0
Flagler 0.5 2.0 0.5 1.5 0.5 0.5 0.5 0.0
Franklin 1 3.5 1.0 2.5 0.5 0.0 0.5
Gadsden 1 0.5 2.5 1.5 1.0 0.5 0.0 0.5
Gilchrist 1 2.5 1.0 1.5 0.5 0.0 0.5
Glades 1 2.5 1.0 1.5 0.5 0.0 0.5
Gulf 1 3.5 1.0 2.5 0.5 0.0 0.5
Hamilton 1 2.5 1.0 1.5 0.5 0.0 0.5
Hardee 1 2.5 1.0 1.5 0.5 0.0 0.5
Hendry 1 2.5 1.0 1.5 0.5 0.0 0.5
Hernando 3.0 0.0 3.0 0.5 0.5 0.5 0.0
Highlands 1 2.0 1.0 1.0 0.5 0.5 0.5 0.0
Hillsborough 0.5 0.5 3.0 1.0 2.0 0.5 0.0 0.5
Holmes 1 2.5 1.0 1.5 0.5 0.0 0.5
Indian River 1 2.0 1.0 1.0 0.5 0.0 0.5
Jackson 1 2.0 1.0 1.0 0.5 0.5 0.5 0.0
Jefferson 1 2.5 1.0 1.5 0.5 0.0 0.5
Lafayette 1 2.5 1.0 1.5 0.5 0.0 0.5
Lake 1 2.0 1.0 1.0 0.5 0.0 0.5
Lee 3.0 0.0 3.0 0.5 0.0 0.5
Leon 1 3.5 1.0 2.5 0.5 0.5 0.5 0.0
Levy 1 2.5 1.0 1.5 0.5 0.0 0.5
Liberty 1 0.5 2.5 1.5 1.0 0.5 0.5 0.5 0.0
Madison 1 0.5 1.5 1.5 0.0 0.5 0.0 0.5
Manatee 0.5 3.0 0.5 2.5 0.5 0.5 0.5 0.0
Marion 1 2.0 1.0 1.0 0.5 0.0 0.5
Martin 2.0 0.0 2.0 0.5 0.0 0.5
Miami-Dade 0.5 0.5 2.0 1.0 1.0 0.5 0.0 0.5
Monroe 1 2.0 1.0 1.0 0.5 0.5 0.5 0.0
Nassau 1 2.0 1.0 1.0 0.5 0.0 0.5
Okaloosa 3.0 0.0 3.0 0.5 0.0 0.5
Okeechobee 1 2.5 1.0 1.5 0.5 0.0 0.5
Orange 3.0 0.0 3.0 0.5 0.5 0.5 0.0
Osceola 1 3.0 1.0 2.0 0.5 0.5 0.5 0.0
Palm Beach 1 3.0 1.0 2.0 0.5 0.0 0.5
Pasco 1 3.0 1.0 2.0 0.5 0.0 0.5
Pinellas 1 3.0 1.0 2.0 0.5 0.0 0.5
Polk 0.5 3.0 0.5 2.5 0.5 0.5 0.5 0.0
Putnam 1 2.0 1.0 1.0 0.5 0.0 0.5
St. Johns 2.0 0.0 2.0 0.5 0.5 0.5 0.0
St. Lucie 2.0 0.0 2.0 0.5 0.5 0.5 0.0
Santa Rosa 0.5 3.0 0.5 2.5 0.5 0.5 0.5 0.0
Sarasota 1 3.0 1.0 2.0 0.5 0.0 0.5
Seminole 1 3.0 1.0 2.0 0.5 0.0 0.5
Sumter 1 2.0 1.0 1.0 0.5 0.0 0.5
Suwannee 1 2.5 1.0 1.5 0.5 0.0 0.5
Taylor 1 2.5 1.0 1.5 0.5 0.0 0.5
Union 1 2.5 1.0 1.5 0.5 0.0 0.5
Volusia 3.0 0.0 3.0 0.5 0.5 0.5 0.0
Wakulla 1 3.5 1.0 2.5 0.5 0.0 0.5
Walton 1 3.0 1.0 2.0 0.5 0.0 0.5
County Government Levies School District Levy
Charter County Certain Levy Combinations Are Subject to Tax Rate Caps - See Notes Below Emergency Fire
School
Transportation Infrastructure Small County Trauma Center Hospital
Local Gov't Indigent Care and Pension Rescue ServicesCounty Public Voter-Approved
Indigent Care Liability
and Regional
and Facilities Capital Outlay
System Surtax Surtax Surtax Surtax Surtax Surtax Surtax Surtax Surtax
s. 212.055(1), F.S.s. 212.055(2), F.S.s. 212.055(3), F.S.s. 212.055(4), F.S.s. 212.055(5), F.S.s. 212.055(7), F.S.s. 212.055(9), F.S.s. 212.055(8), F.S.s. 212.055(6), F.S.
Up to 0.5%Up to 1%Up to 0.5%Up to 1%0.5% or 1%0.5% or 1%Up to 0.25%, 0.5 %0.5%Up to 0.5%, 1%
June 2017 Page 1 of 2
2.A.4
Packet Pg. 53 Attachment: Florida County Local Discretionary Sales Surtax Rates (4087 : Infrastructure Sales Surtax
Office of Economic and Demographic Research
2017 Local Discretionary Sales Surtax Rates in Florida's Counties
Maximum Maximum
Potential Current Unutilized Potential Current Unutilized
County Tax Rate Tax Rate Tax Rate Tax Rate Tax Rate Tax Rate
County Government Levies School District Levy
Charter County Certain Levy Combinations Are Subject to Tax Rate Caps - See Notes Below Emergency Fire
School
Transportation Infrastructure Small County Trauma Center Hospital
Local Gov't Indigent Care and Pension Rescue ServicesCounty Public Voter-Approved
Indigent Care Liability
and Regional
and Facilities Capital Outlay
System Surtax Surtax Surtax Surtax Surtax Surtax Surtax Surtax Surtax
s. 212.055(1), F.S.s. 212.055(2), F.S.s. 212.055(3), F.S.s. 212.055(4), F.S.s. 212.055(5), F.S.s. 212.055(7), F.S.s. 212.055(9), F.S.s. 212.055(8), F.S.s. 212.055(6), F.S.
Up to 0.5%Up to 1%Up to 0.5%Up to 1%0.5% or 1%0.5% or 1%Up to 0.25%, 0.5 %0.5%Up to 0.5%, 1%
Washington 1 2.5 1.0 1.5 0.5 0.0 0.5
# Eligible to Levy:31 67 31 65 1 60 25 65 67 67 67
# Levying:2 25 29 1 1 4 0 1 56 19 19
Notes:
9) Effective July 1, 2009, Chapter 2009-182, L.O.F., created the Emergency Fire Rescue Services and Facilities Surtax. A county's governing body, other than a county that has imposed two separate discretionary surtaxes without expiration, may levy this surtax at a rate of up to 1%, subject to voter
approval in a countywide referendum. Madison and Miami-Dade counties are not eligible to levy this surtax since each county has imposed two separate discretionary surtaxes without expiration. The remaining 65 counties are eligible to levy this surtax. However, if Orange or Osceola impose the
surtax, neither county can levy the surtax within the boundaries of the Reedy Creek Improvement District pursuant to s. 212.055(8)(j), F.S.
1) Boxed areas indicate those counties eligible to impose particular surtaxes authorized for county governments or school districts eligible to impose the School Capital Outlay Surtax.
2) The Indigent Care and Trauma Center Surtax consists of two separate levies for different groups of eligible counties. Non-consolidated counties with a total population of 800,000 or more may impose, either by an extraordinary vote of the county's governing body or voter approval in a countywide
referendum, a surtax not to exceed 0.5% for the purpose of funding health care services for qualified residents. Non-consolidated counties with a total population of less than 800,000 may impose, subject to voter approval in a countywide referendum, a surtax not to exceed 0.25% for the sole purpose of
funding trauma services provided by a trauma center licensed pursuant to Chapter 395, Florida Statutes.
3) Pursuant to ss. 212.055(2)(h) and 212.055(3)(f), F.S., a county cannot levy the Local Government Infrastructure, Small County, Indigent Care and Trauma Center, and County Public Hospital surtaxes in excess of a combined rate of 1%.
4) Pursuant to s. 212.055(4)(b)5., F.S., a county cannot levy the Local Government Infrastructure, Small County, and Indigent Care and Trauma Center surtaxes in excess of a combined rate of 1%.
5) Pursuant to s. 212.055(5)(f), F.S., a county cannot levy the Local Government Infrastructure, Small County, and County Public Hospital surtaxes in excess of a combined rate of 1%.
6) Subject to referendum approval, the Voter-Approved Indigent Care Surtax may be levied by counties with less than 800,000 residents at a rate not to exceed 0.5%. However, if a publicly supported medical school is located within the qualifying county, the rate cannot exceed 1%, pursuant to s.
212.055(7)(a), F.S. Currently, Florida has publicly supported medical schools at the following universities: Florida International University in Miami-Dade County; Florida State University in Leon County; University of Central Florida in Orange County; University of Florida in Alachua County; and the
University of South Florida in Hillsborough County. The Florida International University, University of Central Florida, and University of South Florida medical schools are each located in counties having a resident population greater than 800,000; therefore, Hillsborough, Miami-Dade, and Orange
counties are not eligible to levy the surtax. Only Alachua and Leon counties could levy the surtax at the maximum 1% rate. Additionally, the governing body of any county that has a population of less than 50,000 residents may levy the surtax, at a rate not to exceed 1%, subject to voter approval in
countywide referendum pursuant to Chapter 2005-242, Laws of Florida. Consequently, if a publicly supported medical school is located in the county, or the county has a population of less than 50,000 residents, the combined tax rate of this levy and any Local Government Infrastructure Surtax and
Small County Surtax levies cannot exceed 1.5% pursuant to s. 212.055(7)(f), F.S. For all other counties eligible to levy this surtax, the combined tax rate cannot exceed 1%.
7) Effective July 1, 2009, Chapter 2009-146, L.O.F., renamed the Charter County Transit System Surtax as the Charter County Transportation System Surtax and extended eligibility for surtax levy to 13 additional charter counties.
8) Effective July 1, 2010, Chapter 2010-225, L.O.F., renamed the Charter County Transportation System Surtax as the Charter County and Regional Transportation System Surtax and extended eligibility for surtax levy to each county that is within or under an interlocal agreement with a regional
transportation or transit authority created under Chapters 343 or 349, Florida Statutes (i.e., South Florida Regional Transportation Authority, Central Florida Regional Transportation Authority, Northwest Florida Transportation Corridor Authority, Tampa Bay Area Regional Transportation Authority, and
Jacksonville Transportation Authority). As a result of the legislation, seven counties within the Northwest Florida Transportation Corridor Authority (i.e., Bay, Escambia, Franklin, Gulf, Okaloosa, Santa Rosa, and Walton) and four counties of the Tampa Bay Area Regional Transportation Authority (i.e.,
Citrus, Hernando, Manatee, and Pasco) are eligible to levy this surtax.
Data Source: Florida Department of Revenue, "History of Local Sales Tax and Current Rates" (Last Updated: June 1, 2017).
https://revenuelaw.floridarevenue.com/Pages/Browse.aspx#3-17-23
10) Since both the Charter County and Regional Transportation System Surtax and Emergency Fire Rescue Services and Facilities Surtax are not subject to any tax rate limitations, the maximum potential tax rates for nearly all county governments have increased since July 1, 2009. For Madison and
Miami-Dade counties, the maximum potential tax rate did not change. For 24 counties (i.e., Alachua, Bay, Brevard, Charlotte, Citrus, Clay, Columbia, Escambia, Franklin, Gulf, Hernando, Lee, Leon, Manatee, Okaloosa, Orange, Osceola, Palm Beach, Pasco, Polk, Santa Rosa, Seminole, W akulla, and
Walton), the maximum potential tax rate increased by 2%. For all other counties, the maximum potential tax rate increased by 1%. Currently, Alachua, Franklin, Gulf, Leon, and W akulla counties have the highest maximum potential tax rate for county government levies at 3.5%.
11) Effective July 1, 2016, Chapter 2016-146, L.O.F., created the Pension Liability Surtax and specified that a county considering a Pension Liability Surtax levy must currently levy the Local Government Infrastructure Surtax, which is scheduled to terminate and is not subject to renewal. Additionally, the
legislation created a number of preconditions that must be satisfied prior to a Pension Liability Surtax levy and specified that a county may not levy this surtax as well as the Local Government Infrastructure Surtax, Small County Surtax, Indigent Care and Trauma Center Surtax, and County Public Hospital
Surtax, in excess of a combined rate of 1%.
12) Effective January 1, 2017, the Local Government Infrastructure Surtax is being levied by the following counties: Alachua, 0.5%; Bay, 0.5%; Brevard, 0.5%; Manatee, 0.5%; Marion, 1%; Palm Beach, 1.0%; and Santa Rosa, 0.5%.
13) Effective January 1, 2017, the Emergency Fire Rescue Services and Facilities Surtax is being levied by the following county: Liberty, 0.5%.
14) Effective January 1, 2017, the School Capital Outlay Surtax is being levied by the following counties: Highlands, 0.5%; and Osceola, 0.5%.
15) Effective December 31, 2018, the School Capital Outlay Surtax levies in Calhoun, Polk, and Santa Rosa counties are scheduled to expire.
June 2017 Page 2 of 2
2.A.4
Packet Pg. 54 Attachment: Florida County Local Discretionary Sales Surtax Rates (4087 : Infrastructure Sales Surtax
Reported County Franchise Fee Revenues by Fee Category
Local Fiscal Year Ended September 30, 2015
Telecom-Total
County Electricity munications Water Gas Cable TV Sewer Solid Waste Other Revenues
Alachua -$ -$ -$ -$ -$ -$ 285,534$ -$ 285,534$
Baker 582,548$ -$ -$ -$ -$ -$ -$ -$ 582,548$
Bay -$ -$ -$ -$ -$ -$ -$ -$ -$
Bradford -$ -$ -$ -$ -$ -$ -$ -$ -$
Brevard 13,671,199$ -$ -$ -$ -$ -$ -$ -$ 13,671,199$
Broward 864,000$ -$ -$ -$ -$ -$ -$ -$ 864,000$
Calhoun -$ -$ -$ -$ -$ -$ -$ -$ -$
Charlotte 9,117,461$ -$ -$ -$ -$ -$ -$ -$ 9,117,461$
Citrus -$ -$ -$ -$ -$ -$ -$ -$ -$
Clay 8,089$ -$ -$ -$ -$ -$ 943,251$ -$ 951,340$
Collier -$ -$ -$ -$ -$ -$ -$ -$ -$
Columbia -$ -$ -$ -$ -$ -$ 120,292$ -$ 120,292$
DeSoto 1,224,621$ -$ -$ -$ -$ -$ -$ -$ 1,224,621$
Dixie -$ -$ -$ -$ -$ -$ -$ -$ -$
Duval Refer to the separate municipal table for the consolidated City of Jacksonville/Duval County totals.-$
Escambia 11,830,914$ -$ -$ 1,473,556$ -$ -$ 1,835,237$ 487$ 15,140,194$
Flagler -$ -$ -$ -$ -$ -$ 129,303$ -$ 129,303$
Franklin -$ -$ -$ -$ -$ -$ -$ -$ -$
Gadsden -$ -$ -$ -$ -$ -$ 129,518$ -$ 129,518$
Gilchrist -$ -$ -$ -$ -$ -$ -$ -$ -$
Glades -$ -$ -$ -$ -$ -$ 60,000$ 47,867$ 107,867$
Gulf -$ -$ -$ -$ -$ -$ -$ -$ -$
Hamilton -$ -$ -$ -$ -$ -$ -$ -$ -$
Hardee -$ -$ -$ -$ -$ -$ -$ -$ -$
Hendry -$ -$ -$ -$ 112,709$ -$ 49,769$ -$ 162,478$
Hernando -$ -$ -$ -$ -$ -$ 30,000$ -$ 30,000$
Highlands -$ -$ -$ -$ -$ -$ -$ -$ -$
Hillsborough -$ -$ 3,158$ -$ -$ 7,092$ -$ -$ 10,250$
Holmes -$ -$ -$ -$ -$ -$ 2,000$ -$ 2,000$
Indian River 7,034,498$ -$ 1,600,139$ 90,940$ -$ -$ 455,075$ -$ 9,180,652$
Jackson -$ -$ -$ -$ -$ -$ 1,318,930$ -$ 1,318,930$
Jefferson -$ -$ -$ -$ -$ -$ -$ -$ -$
Lafayette -$ -$ -$ -$ -$ -$ -$ -$ -$
Lake -$ -$ -$ -$ -$ -$ -$ -$ -$
Lee 19,475,612$ -$ -$ -$ -$ -$ 1,778,000$ -$ 21,253,612$
Leon -$ -$ -$ -$ -$ -$ 207,902$ -$ 207,902$
Levy -$ -$ -$ -$ -$ -$ -$ -$ -$
Liberty -$ -$ -$ -$ -$ -$ -$ -$ -$
Madison -$ -$ -$ -$ -$ -$ -$ -$ -$
Manatee -$ -$ -$ -$ -$ -$ -$ -$ -$
Marion -$ -$ -$ -$ -$ -$ -$ -$ -$
Martin -$ -$ -$ -$ -$ -$ 830,391$ -$ 830,391$
Miami-Dade 25,682,784$ -$ -$ -$ -$ -$ -$ -$ 25,682,784$
Monroe -$ -$ -$ -$ -$ -$ 484,741$ -$ 484,741$
Nassau -$ -$ -$ -$ -$ -$ -$ -$ -$
Okaloosa -$ -$ -$ -$ -$ -$ -$ -$ -$
Okeechobee -$ -$ -$ -$ -$ -$ 366,002$ -$ 366,002$
Office of Economic and Demographic Research Page 1 of 2
2.A.5
Packet Pg. 55 Attachment: Florida County Franchise Fee Collection (4087 : Infrastructure Sales Surtax Workshop)
Reported County Franchise Fee Revenues by Fee Category
Local Fiscal Year Ended September 30, 2015
Telecom-Total
County Electricity munications Water Gas Cable TV Sewer Solid Waste Other Revenues
Orange -$ -$ -$ -$ -$ -$ 7,050$ -$ 7,050$
Osceola -$ -$ -$ -$ -$ -$ 1,702,037$ -$ 1,702,037$
Palm Beach 34,386,028$ 2,907,965$ -$ -$ -$ -$ 1,281,758$ -$ 38,575,751$
Pasco -$ -$ -$ -$ -$ -$ 36,072$ -$ 36,072$
Pinellas -$ -$ -$ -$ -$ -$ -$ -$ -$
Polk -$ -$ -$ -$ -$ -$ 229,278$ -$ 229,278$
Putnam -$ -$ -$ -$ -$ -$ -$ -$ -$
St. Johns -$ -$ 442,914$ -$ -$ -$ 272,670$ 15,700$ 731,284$
St. Lucie 4,175,910$ -$ -$ -$ -$ -$ 358,854$ -$ 4,534,764$
Santa Rosa 6,544,713$ -$ -$ -$ -$ -$ 76,000$ -$ 6,620,713$
Sarasota 17,308,484$ -$ -$ -$ -$ -$ -$ -$ 17,308,484$
Seminole -$ -$ -$ -$ -$ -$ 81,996$ -$ 81,996$
Sumter -$ -$ -$ -$ -$ -$ -$ -$ -$
Suwannee -$ -$ -$ -$ -$ -$ -$ -$ -$
Taylor -$ -$ -$ -$ -$ -$ 13,630$ -$ 13,630$
Union -$ -$ -$ -$ -$ -$ -$ -$ -$
Volusia -$ -$ -$ -$ -$ -$ 401,311$ 277,190$ 678,501$
Wakulla -$ -$ -$ -$ -$ -$ -$ -$ -$
Walton -$ -$ -$ -$ -$ -$ -$ -$ -$
Washington -$ -$ -$ -$ -$ -$ -$ -$ -$
Statewide Total 151,906,861$ 2,907,965$ 2,046,211$ 1,564,496$ 112,709$ 7,092$ 13,486,601$ 341,244$ 172,373,179$
Category as %of Total 88.1%1.7%1.2%0.9%0.1%0.0%7.8%0.2%100%
# Reporting 14 1 3 2 1 1 28 4 36
Data Source: Florida Department of Financial Services.
Office of Economic and Demographic Research Page 2 of 2
2.A.5
Packet Pg. 56 Attachment: Florida County Franchise Fee Collection (4087 : Infrastructure Sales Surtax Workshop)
The 2017 Florida Statutes
Title XIV
TAXATION AND
FINANCE
Chapter 212
TAX ON SALES, USE, AND OTHER
TRANSACTIONS
View Entire
Chapter
212.055 Discretionary sales surtaxes; legislative intent; authorization and use of
proceeds.—It is the legislative intent that any authorization for imposition of a discretionary sales
surtax shall be published in the Florida Statutes as a subsection of this section, irrespective of the
duration of the levy. Each enactment shall specify the types of counties authorized to levy; the rate
or rates which may be imposed; the maximum length of time the surtax may be imposed, if any; the
procedure which must be followed to secure voter approval, if required; the purpose for which the
proceeds may be expended; and such other requirements as the Legislature may provide. Taxable
transactions and administrative procedures shall be as provided in s. 212.054.
(1) CHARTER COUNTY AND REGIONAL TRANSPORTATION SYSTEM SURTAX.—
(a) Each charter county that has adopted a charter, each county the government of which is
consolidated with that of one or more municipalities, and each county that is within or under an
interlocal agreement with a regional transportation or transit authority created under chapter 343 or
chapter 349 may levy a discretionary sales surtax, subject to approval by a majority vote of the
electorate of the county or by a charter amendment approved by a majority vote of the electorate of
the county.
(b) The rate shall be up to 1 percent.
(c) The proposal to adopt a discretionary sales surtax as provided in this subsection and to create
a trust fund within the county accounts shall be placed on the ballot in accordance with law at a time
to be set at the discretion of the governing body.
(d) Proceeds from the surtax shall be applied to as many or as few of the uses enumerated below
in whatever combination the county commission deems appropriate:
1. Deposited by the county in the trust fund and shall be used for the purposes of development,
construction, equipment, maintenance, operation, supportive services, including a countywide bus
system, on-demand transportation services, and related costs of a fixed guideway rapid transit
system;
2. Remitted by the governing body of the county to an expressway, transit, or transportation
authority created by law to be used, at the discretion of such authority, for the development,
construction, operation, or maintenance of roads or bridges in the county, for the operation and
maintenance of a bus system, for the operation and maintenance of on-demand transportation
services, for the payment of principal and interest on existing bonds issued for the construction of
such roads or bridges, and, upon approval by the county commission, such proceeds may be pledged
for bonds issued to refinance existing bonds or new bonds issued for the construction of such roads or
bridges;
3. Used by the county for the development, construction, operation, and maintenance of roads
and bridges in the county; for the expansion, operation, and maintenance of bus and fixed guideway
systems; for the expansion, operation, and maintenance of on-demand transportation services; and
for the payment of principal and interest on bonds issued for the construction of fixed guideway rapid
transit systems, bus systems, roads, or bridges; and such proceeds may be pledged by the governing
body of the county for bonds issued to refinance existing bonds or new bonds issued for the
construction of such fixed guideway rapid transit systems, bus systems, roads, or bridges and no more
than 25 percent used for nontransit uses; and
4. Used by the county for the planning, development, construction, operation, and maintenance
of roads and bridges in the county; for the planning, development, expansion, operation, and
2.A.6
Packet Pg. 57 Attachment: F.S. 212.055 (4087 : Infrastructure Sales Surtax Workshop)
Statutes & Constitution :View Statutes : Online Sunshine
maintenance of bus and fixed guideway systems; for the planning, development, construction,
operation, and maintenance of on-demand transportation services; and for the payment of principal
and interest on bonds issued for the construction of fixed guideway rapid transit systems, bus
systems, roads, or bridges; and such proceeds may be pledged by the governing body of the county
for bonds issued to refinance existing bonds or new bonds issued for the construction of such fixed
guideway rapid transit systems, bus systems, roads, or bridges. Pursuant to an interlocal agreement
entered into pursuant to chapter 163, the governing body of the county may distribute proceeds from
the tax to a municipality, or an expressway or transportation authority created by law to be expended
for the purpose authorized by this paragraph. Any county that has entered into interlocal agreements
for distribution of proceeds to one or more municipalities in the county shall revise such interlocal
agreements no less than every 5 years in order to include any municipalities that have been created
since the prior interlocal agreements were executed.
(e) As used in this subsection, the term “on-demand transportation services” means
transportation provided between flexible points of origin and destination selected by individual users
with such service being provided at a time that is agreed upon by the user and the provider of the
service and that is not fixed-schedule or fixed-route in nature.
(2) LOCAL GOVERNMENT INFRASTRUCTURE SURTAX.—
(a)1. The governing authority in each county may levy a discretionary sales surtax of 0.5 percent
or 1 percent. The levy of the surtax shall be pursuant to ordinance enacted by a majority of the
members of the county governing authority and approved by a majority of the electors of the county
voting in a referendum on the surtax. If the governing bodies of the municipalities representing a
majority of the county’s population adopt uniform resolutions establishing the rate of the surtax and
calling for a referendum on the surtax, the levy of the surtax shall be placed on the ballot and shall
take effect if approved by a majority of the electors of the county voting in the referendum on the
surtax.
2. If the surtax was levied pursuant to a referendum held before July 1, 1993, the surtax may not
be levied beyond the time established in the ordinance, or, if the ordinance did not limit the period
of the levy, the surtax may not be levied for more than 15 years. The levy of such surtax may be
extended only by approval of a majority of the electors of the county voting in a referendum on the
surtax.
(b) A statement which includes a brief general description of the projects to be funded by the
surtax and which conforms to the requirements of s. 101.161 shall be placed on the ballot by the
governing authority of any county which enacts an ordinance calling for a referendum on the levy of
the surtax or in which the governing bodies of the municipalities representing a majority of the
county’s population adopt uniform resolutions calling for a referendum on the surtax. The following
question shall be placed on the ballot:
FOR the -cent sales tax
AGAINST the -cent sales tax
(c) Pursuant to s. 212.054(4), the proceeds of the surtax levied under this subsection shall be
distributed to the county and the municipalities within such county in which the surtax was collected,
according to:
1. An interlocal agreement between the county governing authority and the governing bodies of
the municipalities representing a majority of the county’s municipal population, which agreement
may include a school district with the consent of the county governing authority and the governing
bodies of the municipalities representing a majority of the county’s municipal population; or
2. If there is no interlocal agreement, according to the formula provided in s. 218.62.
2.A.6
Packet Pg. 58 Attachment: F.S. 212.055 (4087 : Infrastructure Sales Surtax Workshop)
Statutes & Constitution :View Statutes : Online Sunshine
Any change in the distribution formula must take effect on the first day of any month that begins at
least 60 days after written notification of that change has been made to the department.
(d) The proceeds of the surtax authorized by this subsection and any accrued interest shall be
expended by the school district, within the county and municipalities within the county, or, in the
case of a negotiated joint county agreement, within another county, to finance, plan, and construct
infrastructure; to acquire any interest in land for public recreation, conservation, or protection of
natural resources or to prevent or satisfy private property rights claims resulting from limitations
imposed by the designation of an area of critical state concern; to provide loans, grants, or rebates to
residential or commercial property owners who make energy efficiency improvements to their
residential or commercial property, if a local government ordinance authorizing such use is approved
by referendum; or to finance the closure of county-owned or municipally owned solid waste landfills
that have been closed or are required to be closed by order of the Department of Environmental
Protection. Any use of the proceeds or interest for purposes of landfill closure before July 1, 1993, is
ratified. The proceeds and any interest may not be used for the operational expenses of
infrastructure, except that a county that has a population of fewer than 75,000 and that is required
to close a landfill may use the proceeds or interest for long-term maintenance costs associated with
landfill closure. Counties, as defined in s. 125.011, and charter counties may, in addition, use the
proceeds or interest to retire or service indebtedness incurred for bonds issued before July 1, 1987,
for infrastructure purposes, and for bonds subsequently issued to refund such bonds. Any use of the
proceeds or interest for purposes of retiring or servicing indebtedness incurred for refunding bonds
before July 1, 1999, is ratified.
1. For the purposes of this paragraph, the term “infrastructure” means:
a. Any fixed capital expenditure or fixed capital outlay associated with the construction,
reconstruction, or improvement of public facilities that have a life expectancy of 5 or more years, any
related land acquisition, land improvement, design, and engineering costs, and all other professional
and related costs required to bring the public facilities into service. For purposes of this sub-
subparagraph, the term “public facilities” means facilities as defined in s. 163.3164(38), s.
163.3221(13), or s. 189.012(5), regardless of whether the facilities are owned by the local taxing
authority or another governmental entity.
b. A fire department vehicle, an emergency medical service vehicle, a sheriff’s office vehicle, a
police department vehicle, or any other vehicle, and the equipment necessary to outfit the vehicle
for its official use or equipment that has a life expectancy of at least 5 years.
c. Any expenditure for the construction, lease, or maintenance of, or provision of utilities or
security for, facilities, as defined in s. 29.008.
d. Any fixed capital expenditure or fixed capital outlay associated with the improvement of
private facilities that have a life expectancy of 5 or more years and that the owner agrees to make
available for use on a temporary basis as needed by a local government as a public emergency shelter
or a staging area for emergency response equipment during an emergency officially declared by the
state or by the local government under s. 252.38. Such improvements are limited to those necessary
to comply with current standards for public emergency evacuation shelters. The owner must enter
into a written contract with the local government providing the improvement funding to make the
private facility available to the public for purposes of emergency shelter at no cost to the local
government for a minimum of 10 years after completion of the improvement, with the provision that
the obligation will transfer to any subsequent owner until the end of the minimum period.
e. Any land acquisition expenditure for a residential housing project in which at least 30 percent
of the units are affordable to individuals or families whose total annual household income does not
exceed 120 percent of the area median income adjusted for household size, if the land is owned by a
local government or by a special district that enters into a written agreement with the local
2.A.6
Packet Pg. 59 Attachment: F.S. 212.055 (4087 : Infrastructure Sales Surtax Workshop)
Statutes & Constitution :View Statutes : Online Sunshine
government to provide such housing. The local government or special district may enter into a ground
lease with a public or private person or entity for nominal or other consideration for the construction
of the residential housing project on land acquired pursuant to this sub-subparagraph.
2. For the purposes of this paragraph, the term “energy efficiency improvement” means any
energy conservation and efficiency improvement that reduces consumption through conservation or a
more efficient use of electricity, natural gas, propane, or other forms of energy on the property,
including, but not limited to, air sealing; installation of insulation; installation of energy-efficient
heating, cooling, or ventilation systems; installation of solar panels; building modifications to increase
the use of daylight or shade; replacement of windows; installation of energy controls or energy
recovery systems; installation of electric vehicle charging equipment; installation of systems for
natural gas fuel as defined in s. 206.9951; and installation of efficient lighting equipment.
3. Notwithstanding any other provision of this subsection, a local government infrastructure
surtax imposed or extended after July 1, 1998, may allocate up to 15 percent of the surtax proceeds
for deposit into a trust fund within the county’s accounts created for the purpose of funding
economic development projects having a general public purpose of improving local economies,
including the funding of operational costs and incentives related to economic development. The
ballot statement must indicate the intention to make an allocation under the authority of this
subparagraph.
(e) School districts, counties, and municipalities receiving proceeds under the provisions of this
subsection may pledge such proceeds for the purpose of servicing new bond indebtedness incurred
pursuant to law. Local governments may use the services of the Division of Bond Finance of the State
Board of Administration pursuant to the State Bond Act to issue any bonds through the provisions of
this subsection. Counties and municipalities may join together for the issuance of bonds authorized by
this subsection.
(f)1. Notwithstanding paragraph (d), a county that has a population of 50,000 or less on April 1,
1992, or any county designated as an area of critical state concern on the effective date of this act,
and that imposed the surtax before July 1, 1992, may use the proceeds and interest of the surtax for
any public purpose if:
a. The debt service obligations for any year are met;
b. The county’s comprehensive plan has been determined to be in compliance with part II of
chapter 163; and
c. The county has adopted an amendment to the surtax ordinance pursuant to the procedure
provided in s. 125.66 authorizing additional uses of the surtax proceeds and interest.
2. A municipality located within a county that has a population of 50,000 or less on April 1, 1992,
or within a county designated as an area of critical state concern on the effective date of this act,
and that imposed the surtax before July 1, 1992, may not use the proceeds and interest of the surtax
for any purpose other than an infrastructure purpose authorized in paragraph (d) unless the
municipality’s comprehensive plan has been determined to be in compliance with part II of chapter
163 and the municipality has adopted an amendment to its surtax ordinance or resolution pursuant to
the procedure provided in s. 166.041 authorizing additional uses of the surtax proceeds and interest.
Such municipality may expend the surtax proceeds and interest for any public purpose authorized in
the amendment.
3. Those counties designated as an area of critical state concern which qualify to use the surtax
for any public purpose may use only up to 10 percent of the surtax proceeds for any public purpose
other than for infrastructure purposes authorized by this section. A county that was designated as an
area of critical state concern for at least 20 consecutive years prior to removal of the designation,
and that qualified to use the surtax for any public purpose at the time of the removal of the
designation, may continue to use up to 10 percent of the surtax proceeds for any public purpose other
2.A.6
Packet Pg. 60 Attachment: F.S. 212.055 (4087 : Infrastructure Sales Surtax Workshop)
Statutes & Constitution :View Statutes : Online Sunshine
than for infrastructure purposes for 20 years following removal of the designation, notwithstanding
subparagraph (a)2. After expiration of the 20-year period, a county may continue to use up to 10
percent of the surtax proceeds for any public purpose other than for infrastructure if the county
adopts an ordinance providing for such continued use of the surtax proceeds.
(g) Notwithstanding paragraph (d), a county having a population greater than 75,000 in which the
taxable value of real property is less than 60 percent of the just value of real property for ad valorem
tax purposes for the tax year in which an infrastructure surtax referendum is placed before the
voters, and the municipalities within such a county, may use the proceeds and interest of the surtax
for operation and maintenance of parks and recreation programs and facilities established with the
proceeds of the surtax throughout the duration of the surtax levy or while interest earnings accruing
from the proceeds of the surtax are available for such use, whichever period is longer.
(h) Notwithstanding any other provision of this section, a county shall not levy local option sales
surtaxes authorized in this subsection and subsections (3), (4), and (5) in excess of a combined rate of
1 percent.
(3) SMALL COUNTY SURTAX.—
(a) The governing authority in each county that has a population of 50,000 or less on April 1,
1992, may levy a discretionary sales surtax of 0.5 percent or 1 percent. The levy of the surtax shall be
pursuant to ordinance enacted by an extraordinary vote of the members of the county governing
authority if the surtax revenues are expended for operating purposes. If the surtax revenues are
expended for the purpose of servicing bond indebtedness, the surtax shall be approved by a majority
of the electors of the county voting in a referendum on the surtax.
(b) A statement that includes a brief general description of the projects to be funded by the
surtax and conforms to the requirements of s. 101.161 shall be placed on the ballot by the governing
authority of any county that enacts an ordinance calling for a referendum on the levy of the surtax
for the purpose of servicing bond indebtedness. The following question shall be placed on the ballot:
FOR the -cent sales tax
AGAINST the -cent sales tax
(c) Pursuant to s. 212.054(4), the proceeds of the surtax levied under this subsection shall be
distributed to the county and the municipalities within the county in which the surtax was collected,
according to:
1. An interlocal agreement between the county governing authority and the governing bodies of
the municipalities representing a majority of the county’s municipal population, which agreement
may include a school district with the consent of the county governing authority and the governing
bodies of the municipalities representing a majority of the county’s municipal population; or
2. If there is no interlocal agreement, according to the formula provided in s. 218.62.
Any change in the distribution formula shall take effect on the first day of any month that begins at
least 60 days after written notification of that change has been made to the department.
(d)1. If the surtax is levied pursuant to a referendum, the proceeds of the surtax and any interest
accrued thereto may be expended by the school district or within the county and municipalities
within the county, or, in the case of a negotiated joint county agreement, within another county, for
the purpose of servicing bond indebtedness to finance, plan, and construct infrastructure and to
acquire land for public recreation or conservation or protection of natural resources. However, if the
surtax is levied pursuant to an ordinance approved by an extraordinary vote of the members of the
county governing authority, the proceeds and any interest accrued thereto may be used for
operational expenses of any infrastructure or for any public purpose authorized in the ordinance
under which the surtax is levied.
2.A.6
Packet Pg. 61 Attachment: F.S. 212.055 (4087 : Infrastructure Sales Surtax Workshop)
Statutes & Constitution :View Statutes : Online Sunshine
2. For the purposes of this paragraph, “infrastructure” means any fixed capital expenditure or
fixed capital costs associated with the construction, reconstruction, or improvement of public
facilities that have a life expectancy of 5 or more years and any land acquisition, land improvement,
design, and engineering costs related thereto.
(e) A school district, county, or municipality that receives proceeds under this subsection
following a referendum may pledge the proceeds for the purpose of servicing new bond indebtedness
incurred pursuant to law. Local governments may use the services of the Division of Bond Finance
pursuant to the State Bond Act to issue any bonds through the provisions of this subsection. A
jurisdiction may not issue bonds pursuant to this subsection more frequently than once per year. A
county and municipality may join together to issue bonds authorized by this subsection.
(f) Notwithstanding any other provision of this section, a county shall not levy local option sales
surtaxes authorized in this subsection and subsections (2), (4), and (5) in excess of a combined rate of
1 percent.
(4) INDIGENT CARE AND TRAUMA CENTER SURTAX.—
(a)1. The governing body in each county the government of which is not consolidated with that of
one or more municipalities, which has a population of at least 800,000 residents and is not authorized
to levy a surtax under subsection (5), may levy, pursuant to an ordinance either approved by an
extraordinary vote of the governing body or conditioned to take effect only upon approval by a
majority vote of the electors of the county voting in a referendum, a discretionary sales surtax at a
rate that may not exceed 0.5 percent.
2. If the ordinance is conditioned on a referendum, a statement that includes a brief and general
description of the purposes to be funded by the surtax and that conforms to the requirements of s.
101.161 shall be placed on the ballot by the governing body of the county. The following questions
shall be placed on the ballot:
FOR THE. . . .CENTS TAX
AGAINST THE. . . .CENTS TAX
3. The ordinance adopted by the governing body providing for the imposition of the surtax shall
set forth a plan for providing health care services to qualified residents, as defined in subparagraph 4.
Such plan and subsequent amendments to it shall fund a broad range of health care services for both
indigent persons and the medically poor, including, but not limited to, primary care and preventive
care as well as hospital care. The plan must also address the services to be provided by the Level I
trauma center. It shall emphasize a continuity of care in the most cost-effective setting, taking into
consideration both a high quality of care and geographic access. Where consistent with these
objectives, it shall include, without limitation, services rendered by physicians, clinics, community
hospitals, mental health centers, and alternative delivery sites, as well as at least one regional
referral hospital where appropriate. It shall provide that agreements negotiated between the county
and providers, including hospitals with a Level I trauma center, will include reimbursement
methodologies that take into account the cost of services rendered to eligible patients, recognize
hospitals that render a disproportionate share of indigent care, provide other incentives to promote
the delivery of charity care, promote the advancement of technology in medical services, recognize
the level of responsiveness to medical needs in trauma cases, and require cost containment including,
but not limited to, case management. It must also provide that any hospitals that are owned and
operated by government entities on May 21, 1991, must, as a condition of receiving funds under this
subsection, afford public access equal to that provided under s. 286.011 as to meetings of the
governing board, the subject of which is budgeting resources for the rendition of charity care as that
term is defined in the Florida Hospital Uniform Reporting System (FHURS) manual referenced in s.
408.07. The plan shall also include innovative health care programs that provide cost-effective
2.A.6
Packet Pg. 62 Attachment: F.S. 212.055 (4087 : Infrastructure Sales Surtax Workshop)
Statutes & Constitution :View Statutes : Online Sunshine
alternatives to traditional methods of service delivery and funding.
4. For the purpose of this paragraph, the term “qualified resident” means residents of the
authorizing county who are:
a. Qualified as indigent persons as certified by the authorizing county;
b. Certified by the authorizing county as meeting the definition of the medically poor, defined as
persons having insufficient income, resources, and assets to provide the needed medical care without
using resources required to meet basic needs for shelter, food, clothing, and personal expenses; or
not being eligible for any other state or federal program, or having medical needs that are not
covered by any such program; or having insufficient third-party insurance coverage. In all cases, the
authorizing county is intended to serve as the payor of last resort; or
c. Participating in innovative, cost-effective programs approved by the authorizing county.
5. Moneys collected pursuant to this paragraph remain the property of the state and shall be
distributed by the Department of Revenue on a regular and periodic basis to the clerk of the circuit
court as ex officio custodian of the funds of the authorizing county. The clerk of the circuit court
shall:
a. Maintain the moneys in an indigent health care trust fund;
b. Invest any funds held on deposit in the trust fund pursuant to general law;
c. Disburse the funds, including any interest earned, to any provider of health care services, as
provided in subparagraphs 3. and 4., upon directive from the authorizing county. However, if a county
has a population of at least 800,000 residents and has levied the surtax authorized in this paragraph,
notwithstanding any directive from the authorizing county, on October 1 of each calendar year, the
clerk of the court shall issue a check in the amount of $6.5 million to a hospital in its jurisdiction that
has a Level I trauma center or shall issue a check in the amount of $3.5 million to a hospital in its
jurisdiction that has a Level I trauma center if that county enacts and implements a hospital lien law
in accordance with chapter 98-499, Laws of Florida. The issuance of the checks on October 1 of each
year is provided in recognition of the Level I trauma center status and shall be in addition to the base
contract amount received during fiscal year 1999-2000 and any additional amount negotiated to the
base contract. If the hospital receiving funds for its Level I trauma center status requests such funds
to be used to generate federal matching funds under Medicaid, the clerk of the court shall instead
issue a check to the Agency for Health Care Administration to accomplish that purpose to the extent
that it is allowed through the General Appropriations Act; and
d. Prepare on a biennial basis an audit of the trust fund specified in sub-subparagraph a.
Commencing February 1, 2004, such audit shall be delivered to the governing body and to the chair of
the legislative delegation of each authorizing county.
6. Notwithstanding any other provision of this section, a county shall not levy local option sales
surtaxes authorized in this paragraph and subsections (2) and (3) in excess of a combined rate of 1
percent.
(b) Notwithstanding any other provision of this section, the governing body in each county the
government of which is not consolidated with that of one or more municipalities and which has a
population of less than 800,000 residents, may levy, by ordinance subject to approval by a majority of
the electors of the county voting in a referendum, a discretionary sales surtax at a rate that may not
exceed 0.25 percent for the sole purpose of funding trauma services provided by a trauma center
licensed pursuant to chapter 395.
1. A statement that includes a brief and general description of the purposes to be funded by the
surtax and that conforms to the requirements of s. 101.161 shall be placed on the ballot by the
governing body of the county. The following shall be placed on the ballot:
FOR THE. . . .CENTS TAX
AGAINST THE. . . .CENTS TAX
2.A.6
Packet Pg. 63 Attachment: F.S. 212.055 (4087 : Infrastructure Sales Surtax Workshop)
Statutes & Constitution :View Statutes : Online Sunshine
2. The ordinance adopted by the governing body of the county providing for the imposition of the
surtax shall set forth a plan for providing trauma services to trauma victims presenting in the trauma
service area in which such county is located.
3. Moneys collected pursuant to this paragraph remain the property of the state and shall be
distributed by the Department of Revenue on a regular and periodic basis to the clerk of the circuit
court as ex officio custodian of the funds of the authorizing county. The clerk of the circuit court
shall:
a. Maintain the moneys in a trauma services trust fund.
b. Invest any funds held on deposit in the trust fund pursuant to general law.
c. Disburse the funds, including any interest earned on such funds, to the trauma center in its
trauma service area, as provided in the plan set forth pursuant to subparagraph 2., upon directive
from the authorizing county. If the trauma center receiving funds requests such funds be used to
generate federal matching funds under Medicaid, the custodian of the funds shall instead issue a
check to the Agency for Health Care Administration to accomplish that purpose to the extent that the
agency is allowed through the General Appropriations Act.
d. Prepare on a biennial basis an audit of the trauma services trust fund specified in sub-
subparagraph a., to be delivered to the authorizing county.
4. A discretionary sales surtax imposed pursuant to this paragraph shall expire 4 years after the
effective date of the surtax, unless reenacted by ordinance subject to approval by a majority of the
electors of the county voting in a subsequent referendum.
5. Notwithstanding any other provision of this section, a county shall not levy local option sales
surtaxes authorized in this paragraph and subsections (2) and (3) in excess of a combined rate of 1
percent.
(5) COUNTY PUBLIC HOSPITAL SURTAX.—Any county as defined in s. 125.011(1) may levy the
surtax authorized in this subsection pursuant to an ordinance either approved by extraordinary vote
of the county commission or conditioned to take effect only upon approval by a majority vote of the
electors of the county voting in a referendum. In a county as defined in s. 125.011(1), for the
purposes of this subsection, “county public general hospital” means a general hospital as defined in s.
395.002 which is owned, operated, maintained, or governed by the county or its agency, authority, or
public health trust.
(a) The rate shall be 0.5 percent.
(b) If the ordinance is conditioned on a referendum, the proposal to adopt the county public
hospital surtax shall be placed on the ballot in accordance with law at a time to be set at the
discretion of the governing body. The referendum question on the ballot shall include a brief general
description of the health care services to be funded by the surtax.
(c) Proceeds from the surtax shall be:
1. Deposited by the county in a special fund, set aside from other county funds, to be used only
for the operation, maintenance, and administration of the county public general hospital; and
2. Remitted promptly by the county to the agency, authority, or public health trust created by
law which administers or operates the county public general hospital.
(d) Except as provided in subparagraphs 1. and 2., the county must continue to contribute each
year an amount equal to at least 80 percent of that percentage of the total county budget
appropriated for the operation, administration, and maintenance of the county public general
hospital from the county’s general revenues in the fiscal year of the county ending September 30,
1991:
1. Twenty-five percent of such amount must be remitted to a governing board, agency, or
authority that is wholly independent from the public health trust, agency, or authority responsible for
the county public general hospital, to be used solely for the purpose of funding the plan for indigent
2.A.6
Packet Pg. 64 Attachment: F.S. 212.055 (4087 : Infrastructure Sales Surtax Workshop)
Statutes & Constitution :View Statutes : Online Sunshine
health care services provided for in paragraph (e);
2. However, in the first year of the plan, a total of $10 million shall be remitted to such governing
board, agency, or authority, to be used solely for the purpose of funding the plan for indigent health
care services provided for in paragraph (e), and in the second year of the plan, a total of $15 million
shall be so remitted and used.
(e) A governing board, agency, or authority shall be chartered by the county commission upon this
act becoming law. The governing board, agency, or authority shall adopt and implement a health care
plan for indigent health care services. The governing board, agency, or authority shall consist of no
more than seven and no fewer than five members appointed by the county commission. The members
of the governing board, agency, or authority shall be at least 18 years of age and residents of the
county. No member may be employed by or affiliated with a health care provider or the public health
trust, agency, or authority responsible for the county public general hospital. The following
community organizations shall each appoint a representative to a nominating committee: the South
Florida Hospital and Healthcare Association, the Miami-Dade County Public Health Trust, the Dade
County Medical Association, the Miami-Dade County Homeless Trust, and the Mayor of Miami-Dade
County. This committee shall nominate between 10 and 14 county citizens for the governing board,
agency, or authority. The slate shall be presented to the county commission and the county
commission shall confirm the top five to seven nominees, depending on the size of the governing
board. Until such time as the governing board, agency, or authority is created, the funds provided for
in subparagraph (d)2. shall be placed in a restricted account set aside from other county funds and
not disbursed by the county for any other purpose.
1. The plan shall divide the county into a minimum of four and maximum of six service areas, with
no more than one participant hospital per service area. The county public general hospital shall be
designated as the provider for one of the service areas. Services shall be provided through
participants’ primary acute care facilities.
2. The plan and subsequent amendments to it shall fund a defined range of health care services
for both indigent persons and the medically poor, including primary care, preventive care, hospital
emergency room care, and hospital care necessary to stabilize the patient. For the purposes of this
section, “stabilization” means stabilization as defined in s. 397.311(45). Where consistent with these
objectives, the plan may include services rendered by physicians, clinics, community hospitals, and
alternative delivery sites, as well as at least one regional referral hospital per service area. The plan
shall provide that agreements negotiated between the governing board, agency, or authority and
providers shall recognize hospitals that render a disproportionate share of indigent care, provide
other incentives to promote the delivery of charity care to draw down federal funds where
appropriate, and require cost containment, including, but not limited to, case management. From the
funds specified in subparagraphs (d)1. and 2. for indigent health care services, service providers shall
receive reimbursement at a Medicaid rate to be determined by the governing board, agency, or
authority created pursuant to this paragraph for the initial emergency room visit, and a per-member
per-month fee or capitation for those members enrolled in their service area, as compensation for the
services rendered following the initial emergency visit. Except for provisions of emergency services,
upon determination of eligibility, enrollment shall be deemed to have occurred at the time services
were rendered. The provisions for specific reimbursement of emergency services shall be repealed on
July 1, 2001, unless otherwise reenacted by the Legislature. The capitation amount or rate shall be
determined before program implementation by an independent actuarial consultant. In no event shall
such reimbursement rates exceed the Medicaid rate. The plan must also provide that any hospitals
owned and operated by government entities on or after the effective date of this act must, as a
condition of receiving funds under this subsection, afford public access equal to that provided under
s. 286.011 as to any meeting of the governing board, agency, or authority the subject of which is
2.A.6
Packet Pg. 65 Attachment: F.S. 212.055 (4087 : Infrastructure Sales Surtax Workshop)
Statutes & Constitution :View Statutes : Online Sunshine
budgeting resources for the retention of charity care, as that term is defined in the rules of the
Agency for Health Care Administration. The plan shall also include innovative health care programs
that provide cost-effective alternatives to traditional methods of service and delivery funding.
3. The plan’s benefits shall be made available to all county residents currently eligible to receive
health care services as indigents or medically poor as defined in paragraph (4)(d).
4. Eligible residents who participate in the health care plan shall receive coverage for a period of
12 months or the period extending from the time of enrollment to the end of the current fiscal year,
per enrollment period, whichever is less.
5. At the end of each fiscal year, the governing board, agency, or authority shall prepare an audit
that reviews the budget of the plan, delivery of services, and quality of services, and makes
recommendations to increase the plan’s efficiency. The audit shall take into account participant
hospital satisfaction with the plan and assess the amount of poststabilization patient transfers
requested, and accepted or denied, by the county public general hospital.
(f) Notwithstanding any other provision of this section, a county may not levy local option sales
surtaxes authorized in this subsection and subsections (2) and (3) in excess of a combined rate of 1
percent.
(6) SCHOOL CAPITAL OUTLAY SURTAX.—
(a) The school board in each county may levy, pursuant to resolution conditioned to take effect
only upon approval by a majority vote of the electors of the county voting in a referendum, a
discretionary sales surtax at a rate that may not exceed 0.5 percent.
(b) The resolution shall include a statement that provides a brief and general description of the
school capital outlay projects to be funded by the surtax. The statement shall conform to the
requirements of s. 101.161 and shall be placed on the ballot by the governing body of the county. The
following question shall be placed on the ballot:
FOR THE CENTS TAX
AGAINST THE CENTS TAX
(c) The resolution providing for the imposition of the surtax shall set forth a plan for use of the
surtax proceeds for fixed capital expenditures or fixed capital costs associated with the construction,
reconstruction, or improvement of school facilities and campuses which have a useful life expectancy
of 5 or more years, and any land acquisition, land improvement, design, and engineering costs related
thereto. Additionally, the plan shall include the costs of retrofitting and providing for technology
implementation, including hardware and software, for the various sites within the school district.
Surtax revenues may be used for the purpose of servicing bond indebtedness to finance projects
authorized by this subsection, and any interest accrued thereto may be held in trust to finance such
projects. Neither the proceeds of the surtax nor any interest accrued thereto shall be used for
operational expenses.
(d) Surtax revenues collected by the Department of Revenue pursuant to this subsection shall be
distributed to the school board imposing the surtax in accordance with law.
(7) VOTER-APPROVED INDIGENT CARE SURTAX.—
(a)1. The governing body in each county that has a population of fewer than 800,000 residents
may levy an indigent care surtax pursuant to an ordinance conditioned to take effect only upon
approval by a majority vote of the electors of the county voting in a referendum. The surtax may be
levied at a rate not to exceed 0.5 percent, except that if a publicly supported medical school is
located in the county, the rate shall not exceed 1 percent.
2. Notwithstanding subparagraph 1., the governing body of any county that has a population of
fewer than 50,000 residents may levy an indigent care surtax pursuant to an ordinance conditioned to
2.A.6
Packet Pg. 66 Attachment: F.S. 212.055 (4087 : Infrastructure Sales Surtax Workshop)
Statutes & Constitution :View Statutes : Online Sunshine
take effect only upon approval by a majority vote of the electors of the county voting in a
referendum. The surtax may be levied at a rate not to exceed 1 percent.
(b) A statement that includes a brief and general description of the purposes to be funded by the
surtax and that conforms to the requirements of s. 101.161 shall be placed on the ballot by the
governing body of the county. The following questions shall be placed on the ballot:
FOR THE. . . .CENTS TAX
AGAINST THE. . . .CENTS TAX
(c)1. The ordinance adopted by the governing body providing for the imposition of the surtax must
set forth a plan for providing health care services to qualified residents, as defined in paragraph (d).
The plan and subsequent amendments to it shall fund a broad range of health care services for
indigent persons and the medically poor, including, but not limited to, primary care and preventive
care, as well as hospital care. It shall emphasize a continuity of care in the most cost-effective
setting, taking into consideration a high quality of care and geographic access. Where consistent with
these objectives, it shall include, without limitation, services rendered by physicians, clinics,
community hospitals, mental health centers, and alternative delivery sites, as well as at least one
regional referral hospital where appropriate. It shall provide that agreements negotiated between the
county and providers shall include reimbursement methodologies that take into account the cost of
services rendered to eligible patients, recognize hospitals that render a disproportionate share of
indigent care, provide other incentives to promote the delivery of charity care, and require cost
containment, including, but not limited to, case management. The plan must also include innovative
health care programs that provide cost-effective alternatives to traditional methods of service
delivery and funding.
2. In addition to the uses specified or services required to be provided under this subsection, the
ordinance adopted by a county that has a population of fewer than 50,000 residents may pledge
surtax proceeds to service new or existing bond indebtedness incurred to finance, plan, construct, or
reconstruct a public or not-for-profit hospital in such county and any land acquisition, land
improvement, design, or engineering costs related to such hospital, if the governing body of the
county determines that a public or not-for-profit hospital existing at the time of issuance of the bonds
authorized under this subparagraph would, more likely than not, otherwise cease to operate. The
plan required under this paragraph may, by an extraordinary vote of the governing body of such
county, provide that some or all of the surtax revenues and any interest earned must be expended for
the purpose of servicing such bond indebtedness. Such county may also use the services of the
Division of Bond Finance of the State Board of Administration pursuant to the State Bond Act to issue
bonds under this subparagraph. A jurisdiction may not issue bonds under this subparagraph more
frequently than once per year. Any county that has a population of fewer than 50,000 residents at the
time any bonds authorized in this subparagraph are issued retains the authority granted under this
subparagraph throughout the terms of such bonds, including the term of any refinancing bonds,
regardless of any subsequent increase in population which would result in such county having 50,000
or more residents.
(d) For the purpose of this subsection, the term “qualified residents” means residents of the
authorizing county who are:
1. Qualified as indigent persons as certified by the authorizing county;
2. Certified by the authorizing county as meeting the definition of the medically poor, defined as
persons having insufficient income, resources, and assets to provide the needed medical care without
using resources required to meet basic needs for shelter, food, clothing, and personal expenses; not
being eligible for any other state or federal program or having medical needs that are not covered by
any such program; or having insufficient third-party insurance coverage. In all cases, the authorizing
2.A.6
Packet Pg. 67 Attachment: F.S. 212.055 (4087 : Infrastructure Sales Surtax Workshop)
Statutes & Constitution :View Statutes : Online Sunshine
county shall serve as the payor of last resort; or
3. Participating in innovative, cost-effective programs approved by the authorizing county.
(e) Moneys collected pursuant to this subsection remain the property of the state and shall be
distributed by the Department of Revenue on a regular and periodic basis to the clerk of the circuit
court as ex officio custodian of the funds of the authorizing county. The clerk of the circuit court
shall:
1. Maintain the moneys in an indigent health care trust fund.
2. Invest any funds held on deposit in the trust fund pursuant to general law.
3. Disburse the funds, including any interest earned, to any provider of health care services, as
provided in paragraphs (c) and (d), upon directive from the authorizing county.
4. Disburse the funds, including any interest earned, to service any bond indebtedness authorized
in this subsection upon directive from the authorizing county, which directive may be irrevocably
given at the time the bond indebtedness is incurred.
(f) Notwithstanding any other provision of this section, a county may not levy local option sales
surtaxes authorized in this subsection and subsections (2) and (3) in excess of a combined rate of 1
percent or, if a publicly supported medical school is located in the county or the county has a
population of fewer than 50,000 residents, in excess of a combined rate of 1.5 percent.
(8) EMERGENCY FIRE RESCUE SERVICES AND FACILITIES SURTAX.—
(a) The governing authority of a county, other than a county that has imposed two separate
discretionary surtaxes without expiration, may, by ordinance, levy a discretionary sales surtax of up
to 1 percent for emergency fire rescue services and facilities as provided in this subsection. As used in
this subsection, the term “emergency fire rescue services” includes, but is not limited to, preventing
and extinguishing fires; protecting and saving life and property from fires or natural or intentional
acts or disasters; enforcing municipal, county, or state fire prevention codes and laws pertaining to
the prevention and control of fires; and providing prehospital emergency medical treatment.
(b) Upon the adoption of the ordinance, the levy of the surtax must be placed on the ballot by the
governing authority of the county enacting the ordinance. The ordinance will take effect if approved
by a majority of the electors of the county voting in a referendum held for such purpose. The
referendum shall be placed on the ballot of a regularly scheduled election. The ballot for the
referendum must conform to the requirements of s. 101.161.
(c) Pursuant to s. 212.054(4), the proceeds of the discretionary sales surtax collected under this
subsection, less an administrative fee that may be retained by the Department of Revenue, shall be
distributed by the department to the county. The county shall distribute the proceeds it receives
from the department to each local government entity providing emergency fire rescue services in the
county. The surtax proceeds, less an administrative fee not to exceed 2 percent of the surtax
collected, shall be distributed by the county based on each entity’s average annual expenditures for
fire control and emergency fire rescue services in the 5 fiscal years preceding the fiscal year in which
the surtax takes effect in proportion to the average annual total of the expenditures for such entities
in the 5 fiscal years preceding the fiscal year in which the surtax takes effect. The county shall revise
the distribution proportions to reflect a change in the service area of an entity receiving a
distribution of the surtax proceeds. If an entity declines its share of surtax revenue, such revenue
shall be redistributed proportionally to the entities that are participating in the sharing of such
revenue based on each participating entity’s average annual expenditures for fire control and
emergency fire rescue services in the preceding 5 fiscal years in proportion to the average annual
total of the expenditures for the participating entities in the preceding 5 fiscal years.
(d) If a local government entity requests personnel or equipment from any other service provider
on a long-term basis and the personnel or equipment is provided, the local government entity
providing the service is entitled to payment from the requesting service provider from that provider’s
2.A.6
Packet Pg. 68 Attachment: F.S. 212.055 (4087 : Infrastructure Sales Surtax Workshop)
Statutes & Constitution :View Statutes : Online Sunshine
share of the surtax proceeds for all costs of the equipment or personnel.
(e) Upon the surtax taking effect and initiation of collections, each local government entity
receiving a share of surtax proceeds shall reduce the ad valorem tax levy or any non-ad valorem
assessment for fire control and emergency rescue services in its next and subsequent budgets by the
estimated amount of revenue provided by the surtax.
(f) Use of surtax proceeds authorized under this subsection does not relieve a local government
entity from complying with chapter 200 and any related provision of law that establishes millage caps
or limits undesignated budget reserves and procedures for establishing rollback rates for ad valorem
taxes and budget adoption. If surtax collections exceed projected collections in any fiscal year, any
surplus distribution shall be used to further reduce ad valorem taxes in the next fiscal year. These
proceeds shall be applied as a rebate to the final millage, after the TRIM notice is completed in
accordance with this provision. If a local government entity receiving a share of the surtax is unable
to further reduce ad valorem taxes because the millage rate is zero, the funds shall be applied to
reduce any non-ad valorem assessments levied for the purposes described in this section. If no ad
valorem or non-ad valorem reduction is possible, the surplus surtax collections shall be returned to
the county, and the county shall reduce the county millage rates to offset the surplus surtax
proceeds.
(g) Surtax collections shall be initiated on January 1 of the year following a successful referendum
in order to coincide with s. 212.054(5).
(h) Notwithstanding s. 212.054, if a multicounty independent special district created pursuant to
chapter 67-764, Laws of Florida, levies ad valorem taxes on district property to fund emergency fire
rescue services within the district and is required by s. 2, Art. VII of the State Constitution to
maintain a uniform ad valorem tax rate throughout the district, the county may not levy the
discretionary sales surtax authorized by this subsection within the boundaries of the district.
(9) PENSION LIABILITY SURTAX.—
(a) The governing body of a county may levy a pension liability surtax to fund an underfunded
defined benefit retirement plan or system, pursuant to an ordinance conditioned to take effect upon
approval by a majority vote of the electors of the county voting in a referendum, at a rate that may
not exceed 0.5 percent. The county may not impose a pension liability surtax unless the underfunded
defined benefit retirement plan or system is below 80 percent of actuarial funding at the time the
ordinance or referendum is passed. The most recent actuarial report submitted to the Department of
Management Services pursuant to s. 112.63 must be used to establish the level of actuarial funding
for purposes of determining eligibility to impose the surtax. The governing body of a county may only
impose the surtax if:
1. An employee, including a police officer or firefighter, who enters employment on or after the
date when the local government certifies that the defined benefit retirement plan or system formerly
available to such an employee has been closed may not enroll in a defined benefit retirement plan or
system that will receive surtax proceeds.
2. The local government and the collective bargaining representative for the members of the
underfunded defined benefit retirement plan or system or, if there is no representative, a majority of
the members of the plan or system, mutually consent to requiring each member to make an employee
retirement contribution of at least 10 percent of each member’s salary for each pay period beginning
with the first pay period after the plan or system is closed.
3. The pension board of trustees for the underfunded defined benefit retirement plan or system,
if such board exists, is prohibited from participating in the collective bargaining process and engaging
in the determination of pension benefits.
4. The county currently levies a local government infrastructure surtax pursuant to subsection (2)
which is scheduled to terminate and is not subject to renewal.
2.A.6
Packet Pg. 69 Attachment: F.S. 212.055 (4087 : Infrastructure Sales Surtax Workshop)
Statutes & Constitution :View Statutes : Online Sunshine
5. The pension liability surtax does not take effect until the local government infrastructure
surtax described in subparagraph 4. is terminated.
(b) A referendum to adopt a pension liability surtax must meet the requirements of s. 101.161
and must include a brief and general description of the purposes for which the surtax proceeds will be
used.
(c) Pursuant to s. 212.054(4), the proceeds of the surtax collected under this subsection, less an
administrative fee that may be retained by the department, shall be distributed by the department to
the local government.
(d) The local government may use the pension liability surtax proceeds in the following manner:
1. If the proceeds of the pension liability surtax have been actuarially recognized as provided in s.
112.64(6), the local government must distribute the proceeds to an eligible defined benefit
retirement plan or system, not including the Florida Retirement System.
2. If the proceeds of the pension liability surtax have not been actuarially recognized, the local
government is authorized to distribute the proceeds to an eligible defined benefit retirement plan or
system, not including the Florida Retirement System, to pledge the proceeds of the surtax to repay
debts incurred for the purpose of making advanced payments toward the unfunded liability of an
underfunded defined benefit retirement plan or system, and to reimburse itself from the proceeds of
the surtax for any borrowing costs associated with such debts.
(e) The ordinance providing for the imposition of the pension liability surtax must specify how the
proceeds will be used:
1. The ordinance must specify the method of determining the percentage of the proceeds, and
the frequency of such payments, distributed to each eligible defined benefit retirement plan or
system if the proceeds of the pension liability surtax are actuarially recognized as provided in s.
112.64(6).
2. The ordinance must specify the local government’s intention to incur debt for the purpose of
making advanced payments toward the unfunded liability of an underfunded defined benefit
retirement plan or system if the proceeds of the pension liability surtax are not actuarially recognized
as provided in s. 112.64(6).
(f) A pension liability surtax imposed pursuant to this subsection shall terminate on December 31
of the year in which the actuarial funding level is expected to reach or exceed 100 percent for the
defined benefit retirement plan or system for which the surtax was levied or December 31, 2060,
whichever occurs first. The most recent actuarial report submitted to the Department of Management
Services pursuant to s. 112.63 must be used to establish the level of actuarial funding.
(g) Notwithstanding any other provision of this section, a county may not levy local option sales
surtaxes authorized in this subsection and subsections (2), (3), (4), and (5) in excess of a combined
rate of 1 percent.
History.—s. 2, ch. 76-284; s. 5, ch. 82-154; s. 3, ch. 83-3; s. 1, ch. 84-373; s. 1, ch. 84-555; s. 25, ch. 85-180; s. 70,
ch. 85-342; s. 8, ch. 87-99; s. 1, ch. 87-100; s. 2, ch. 87-239; s. 12, ch. 87-548; s. 85, ch. 90-132; s. 4, ch. 90-203; s. 1,
ch. 90-282; ss. 2, 3, ch. 91-81; s. 29, ch. 91-112; s. 2, ch. 91-418; s. 1, ch. 91-423; s. 148, ch. 92-279; ss. 1, 2, ch. 92-
309; s. 55, ch. 92-326; s. 3, ch. 93-207; s. 3, ch. 93-222; s. 51, ch. 94-356; s. 1, ch. 95-258; s. 1, ch. 96-240; s. 1, ch. 97-
83; s. 17, ch. 97-384; s. 7, ch. 98-258; s. 9, ch. 98-342; s. 4, ch. 99-4; s. 1, ch. 99-340; s. 54, ch. 99-385; s. 40, ch. 2000-
151; ss. 10, 11, 13, 16, ch. 2000-312; s. 78, ch. 2000-318; s. 33, ch. 2001-60; s. 100, ch. 2002-20; s. 7, ch. 2002-196; s.
1, ch. 2003-77; ss. 33, 42, ch. 2003-254; s. 91, ch. 2003-402; s. 6, ch. 2004-41; s. 1, ch. 2004-66; s. 1, ch. 2004-259; s.
3, ch. 2005-55; s. 1, ch. 2005-56; s. 1, ch. 2005-96; s. 1, ch. 2005-242; s. 1, ch. 2006-66; s. 2, ch. 2006-223; s. 14, ch.
2007-196; s. 19, ch. 2009-96; s. 1, ch. 2009-132; s. 1, ch. 2009-146; s. 1, ch. 2009-182; s. 1, ch. 2010-154; s. 1, ch.
2010-225; s. 5, ch. 2011-15; s. 3, ch. 2012-117; s. 14, ch. 2013-198; s. 6, ch. 2015-100; s. 1, ch. 2015-169; s. 2, ch.
2016-146; s. 2, ch. 2016-225; s. 64, ch. 2016-241; s. 27, ch. 2017-173.
2.A.6
Packet Pg. 70 Attachment: F.S. 212.055 (4087 : Infrastructure Sales Surtax Workshop)
11/07/2017
COLLIER COUNTY
Board of County Commissioners
Item Number: 2.B
Item Summary: Hurricane Irma After Action Workshop
Meeting Date: 11/07/2017
Prepared by:
Title: Operations Analyst – County Manager's Office
Name: Geoffrey Willig
11/01/2017 4:20 PM
Submitted by:
Title: County Manager – County Manager's Office
Name: Leo E. Ochs
11/01/2017 4:20 PM
Approved By:
Review:
County Manager's Office Geoffrey Willig County Manager Review Completed 11/01/2017 5:13 PM
Board of County Commissioners MaryJo Brock Meeting Pending 11/07/2017 9:00 AM
2.B
Packet Pg. 71
After Action Findings
Hurricane Irma Response
September 6 –16, 2017
Board of County Commissioners Work Session
November 7, 2017
2.B.1
Packet Pg. 72 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Today’s Agenda
Opening Remarks:
Overview of Customer Service-Facts at a Glance.
Emergency Management Staff introductions:
Executive Overview of the After Action Report
Presentation on Topics for Review:
–Core Competences for Emergency Management
–National Incident Management System (BCC resolution)
–Citizen Communication Linkages, Cellular Services and Commercial Media
–Public Safety Announcements and Social Media
–Emergency Alert System and New Technology coming to Collier County.
–Fuel Management for Citizens and Emergency Operations
–Critical Facilities –Nursing homes and other licensed facilities.-Emergency
Rules
–Critical Facilities-Shelters and Pet Friendly Operations
–Critical Facilities-Special Needs Shelters and Clients
–Transportation, Road and Bridge-Growth Management
2
2.B.1
Packet Pg. 73 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Today’s Agenda Continued:
Volunteer and Donations Coordination
Debris Removal
EOC Logistical Support
Temporary Housing
Financial Operations –County Managers Office
Cat A -Debris
Cat B-Emergency Measures
Questions and Comments:
Re-Cap of focus areas for Board and Staff Action
If time allows: Brief updates are available regarding:
–Beach Damage Assessment
–County Property Damage
–Debris Mission Financial Impact
–National Flood Insurance Program
Public Comment
Adjourn
3
2.B.1
Packet Pg. 74 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Opening Remarks
Len Price, Administrative
Services
4
2.B.1
Packet Pg. 75 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Customer Service: Facts at a Glance:
Extraordinary work by the County, Municipal, District and
Voluntary Agencies:
Collier County and the EOC coordinated the following:
63 tractor trailer loads of emergency commodities-Meals, Water, Tarps at
24 points of distribution.
Over 500 major mission deployments/actions by the EOC.
53 External Voluntary Agencies were working countywide
240 Debris Removal vehicles are on the road today.
4 million cubic yards of debris based on current estimates
30,000 Hotline and 311 calls were answered
18 Media Press Conferences or Media Availability events
756 man-hours on Damage Assessment providing a comprehensive damage
assessment to the State with a new state of the art damage assessment
software application.
379 Portable Toilets deployed to 133 locations.
41,000 meals served to first and second responders 5
2.B.1
Packet Pg. 76 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Facts at a Glance continued:
4 large generators for County and Sherriff's Bldgs.
1 Tractor Trailer Chiller System deployed for Special Needs Shelter.
17,000+ Safely sheltered.
140+-State Missions Action Request ranging from National Guard to
commodities supply and distribution.
110 Pumper Trucks
144 Lift Station Generators (44 County owned)
857 Lift stations-County –Impacted by massive power outage
400+_ Private Lift stations –impacted by power outages
80,000 gallons of fuel provided by State mission support.
Countless efforts of County and City support to mutual assistance for
public safety, health and welfare.
6
2.B.1
Packet Pg. 77 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Executive Summary –After
Action Report-Dan Summers
7
2.B.1
Packet Pg. 78 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Report Scope and Overview
Critical Findings
Next Steps
8
2.B.1
Packet Pg. 79 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
After-Action Report Scope
Collier County response actions from September 6 –Oct. 16th.
Includes preparedness efforts through the week after landfall.
Does NOT include After-Action discussions with municipalities, Fire Service,
EMS and District Schools. Information relevant to the Board or the County
Managers office, from those meetings, either hosted or attended by
Emergency Management will be brought forward.
Developed using information gathered from 14 interviews with
48 Collier County employees and stakeholders
Limited to observations and analysis available through October 18, 2017
9
2.B.1
Packet Pg. 80 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
After-Action Report Overview
Identifies observations of both strengths and challenges during
response to Hurricane Irma
Provides analysis and recommendations related to each observation.
Staff will make comments on each topic on the agenda, so as to share
concerns, corrective actions and Board considerations.
Organized by FEMA National Preparedness Goal Core Capabilities
Common national framework for local, state, and federal agencies
Intended as a roadmap for future development and modifications
of processes
Areas for improvement are not shortcomings, they are opportunities to
enhance capabilities before the next disaster in Collier County. Staff will
present to the Board some policy and future action considerations.
10
2.B.1
Packet Pg. 81 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Report Scope and Overview
Critical Findings
Next Steps
11
2.B.1
Packet Pg. 82 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Critical Findings
The pre-landfall public information campaign was successful, but
communication with the public was impacted post-landfall by
power loss.
Fuel shortages impacted County employees responding to the
hurricane, private citizens, and supply for generators.
Shelter demand far exceeded the planning assumptions, requiring
last minute coordination to open sufficient number of shelters.
Under State licensing some assisted living facilities and long-term
care facilities did not have sufficient back-up power capabilities.
While a large number of life-safety issues were presented in this
event the presence of strong leadership and coordination at all
levels led to successful operations to address life sustaining
issues.
12
2.B.1
Packet Pg. 83 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Public Information and Communication Systems
The use of the County’s established traditional and social media
platforms allowed for effective public information and warning
messages to be delivered before landfall.
Collier County staff answered an estimated 30,000 calls on the
Hurricane Hotline and 3-1-1.
The County’s ability to communicate with the public immediately
after the storm was limited due to widespread loss of power.
Primary Recommendations
Identify and create procedures and pre-scripted messages to
support alternative public information messaging and the use of
other devices (AM/FM-NOAA) when web-based and television
mediums are not available.
13
2.B.1
Packet Pg. 84 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Fuel Shortages
The lack of commercially available fuel severely impeded the County’s ability to
support some response efforts.
Fuel was needed for generators at County and non-County owned critical
facilities.
County employees needed fuel for cars to fulfill response roles due to
commercial shortages.
County ensured all life-safety needs were met with its available fuel supply.
Primary Recommendations
Identify multiple fuel vendors with contract penalty clause to prevent future
vendor shortages or vendor managed inventory.
Including those who specialize in disaster and those out of the immediate
region.
Identify all County assets that can be used for fuel storage and distribution (e.g.,
department fuel trucks, portable tanks for pickup trucks).
14
2.B.1
Packet Pg. 85 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Alternate Power for Critical Facilities
Non-County owned or managed critical facilities, including private lift
stations, nursing homes, assisted living facilities, and shelter facilities did
not have adequate alternate power sources in most cases.
Collier County had limited supply of portable generators and portable
AC units to meet County and non-County owned critical facility needs.
We propose discussing a range of options.
There were no life-safety failure issues at any facility due to efforts to
provide generator, fuel, or cooling support as needed.
Primary Recommendations
Work with non-County owned critical facilities to identify generator
status, facility functions supported by generators, and maintenance
plan. Such efforts may be by ordinance or State regulation.
Prioritize list of critical facilities to receive portable generator support in
a disaster based on fixed or temporary needs..
15
2.B.1
Packet Pg. 86 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
General Population, Pet Friendly and Special Needs Shelters
The Collier County pre-hurricane shelter plans and resources
accounted for a demand of 10,000 evacuees in 10 shelters; an
estimated 17,620 people sought shelter during Hurricane Irma.
The Special Needs Shelter had a planned capacity of 40 special needs
clients, and there were 396 special needs clients that were served at this
facility during Hurricane Irma.
Collier County, Collier County Public Schools, and all response
stakeholders coordinated to open 29 shelters to accommodate all
evacuees.
Primary Recommendations
Perform a shelter needs assessment for future incidents,
including a new triage system for the demand for critical care or
special needs evacuees.
Work with neighboring counties on regional shelter planning
efforts to leverage and share resources.
16
2.B.1
Packet Pg. 87 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Coordination and Leadership
All responding Collier County employees and stakeholders
worked tirelessly together to prepare for and respond to the
needs of the County residents during Hurricane Irma.
Through this teamwork and coordination the County—under
County Manager, senior leaders, and Bureau of Emergency
Services leadership—identified and addressed all critical issues
that arose throughout the incident.
Primary Recommendations
Provide regular training for all County staff on coordination
processes.
Identify additional response staffing procedures and resources
(e.g., mutual aid) to supplement existing structure for long
activation periods.
17
2.B.1
Packet Pg. 88 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Report Scope and Overview
Critical Findings
Next Steps
18
2.B.1
Packet Pg. 89 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Next Steps
Following Staff Presentations and Board Discussion, We will re-
cap before we adjourn our suggestions for bringing future action
items to the Board based on discussions today.
County EM will continue to work with municipalities, fire districts
and others for corrective actions.
19
2.B.1
Packet Pg. 90 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Staff Presentation on Topics:
20
2.B.1
Packet Pg. 91 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Core Competences Dan Summers
Public Information and Warning
Logistical and Supply Chain
Mass Care
Operational Communications
Operational Coordination
Planning
21
2.B.1
Packet Pg. 92 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
National Incident Management System-Weak Links
22
2.B.1
Packet Pg. 93 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Citizen Communications –Public Information and Warning
23
2.B.1
Packet Pg. 94 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Cellular Communications
Challenges:
Cellular is “radio” it takes towers to provide coverage.
Towers in some cases connect to underground fiber and copper for both
data and voice communications.
Fiber and Cooper connect to local switch stations
Uprooted trees and broken lines can generate interruptions
Collier County experienced a significant outage when the Golden Gate
Centurylink switch station experienced major storm damage that switches
and routes calls and data. Some switch site nodes are outside of Collier
County and can bog down due to statewide resource demand.
Cellular is unregulated. Service restoration is market driven.
Storm Messaging:
Do more with text-Family and Friends-Less cellular resource
Our EOC could do more with text
24
2.B.1
Packet Pg. 95 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Cellular and Public Messaging:
Storm Messaging:
Re-enforce AM/FM and NOAA weather alert radio
EOC should re-visit AM/FM public private opportunities
EOC should re-visit text resources-See Everbridge
Expand post event use of Variable Message Boards, Flyers, and critical
facilities as a means of public information.
Facebook Live and Twitter were highly effective
Our WebSite was highly effective
Our Hurricane Hotline Call Center was Awesome!
Local TV media was very cooperative and live feeds from EOC press
conferences worked well.
Review “on-air” capabilities versus our dependency on “cable”
Simulcasting by several local broadcasters seemed to work well.
25
2.B.1
Packet Pg. 96 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Emergency Alert System and New Technology
26
2.B.1
Packet Pg. 97 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Fuel Management (Citizens and Emergency Operations)
Collier County governmental unit-did not run out of fuel.
Commercial fuel was impacted by several factors:
Hurricane Harvey
Scheduled closing of the Port of Tampa
Surge demand-Commercial, Industrial and Retail both pre and post event.
Fuel was in the ground, but could not be pumped at traditional retail due to
widespread power outages.
State’s Fuel Desk-reported ample commodity-but shortage of
transportation resources-Governor suspended all DOT weights and hours.
County supported private critical needs situations where life and death
concerns were prevalent.
Some cases vendor’s overcommitted.
Recommendations are provided later in the presentation.
27
2.B.1
Packet Pg. 98 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Critical Facilities-Nursing Homes and licensed facilities
Local Emergency Management reviews and approves licensed
facilities emergency operations plans.
We announced early in the EOC activation, that life safety
missions for frail and elderly were our top priority.
Most facilities were in a stalemate situation with their evacuation
plans due to the track of the storm.
Many facilities –Bus contracts and or route failed due to the
track of the storm.
Our engagement -77 Facilities get our review
Our request for the Board to endorse the emergency rules or
evoke local ordinances-Now needs to include electrical
inspections.
28
2.B.1
Packet Pg. 99 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Critical Facilities –Shelters and Pet Friendly
We underestimated the number of evacuees in this model
scenario.
We will change our planning assumption on the % of individuals who will
seek local shelter-based in part to the fears of interstate travel.
We have a deficit in shelter workers and resources and based our shelter
models on what we have, not what we need in a worst or moderate case.
There is no mutual aid or contractual resources to provide relief to local
government or the school district for shelter management manpower.
National Guard was a last resort source of help. Not trained, Not part of
their normal mission and quite expensive.
Red Cross, continue to retreat and only offered assistance with 1 shelter
contrary to their national mission.
School District and County Employees were life-savers and stepped-up.
However, the need manpower need is greater if we look at 20-30 shelters
in future scenarios.
29
2.B.1
Packet Pg. 100 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Critical Facilities –Shelters and Pet Friendly
Since the Board’s resolution to offer limited Pet Friendly shelter
operations, FEMA now approves those expenses as reimbursable
shelter cost.
We were evaluating sites for pet-friendly operations to bring to
the District Schools for consideration before this event.
District Schools was most accommodating and we will after-
action review and develop policy and procedure moving forward
from this event.
Board should be aware of future cost such as: Trained animal
control staff, spare crates and kennels, supplies, portable power
needs, and in-depth site cleaning will be part of this
accommodation.
30
2.B.1
Packet Pg. 101 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Critical Facilities-Special Needs Shelter
Florida Department of Health-Collier, has the lead role for
patient care. DOH clinical staff reductions-statewide impact the
disaster service capability.
1,150 registrants were on EM records before the storm. In 8 days
the number jumped to 2014.
Over/Under triage of PSN Clients needing shelter which may have
contributed to an excess population at the shelter-Under review.
We need to double our efforts for:
Staffing (State, Contract, and Mutual Aid)
Electrical and cooling capability
Square footage-Single site preferred.
Supplies, Handicap Accessible facilities and specialty meals
Plan for longer stays and expand options for post-event placement.
31
2.B.1
Packet Pg. 102 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Transportation Division
Tremendous success in Road and Bridge Department handling -
massive efforts to clear intersections
Excellent job by CCSO, FHP, and mutual aid law enforcement
agencies to provide intersection monitoring and traffic control
Temporary 4 way stop signs deployment was quick.
Temporary power provided at intersections was well executed.
Asset losses were quickly verified and efforts on-going for re-
building and hardening.
32
2.B.1
Packet Pg. 103 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Volunteer and Donations Management
Rouge messaging via Social Media led to an overwhelming
number of spontaneous and converging volunteers, that in some
cases were a bigger challenge to manage and support than the
event itself.
Pacing the donations, Avoidance of duplication, leveraging
resources, Placing cash back into the community. Some
complaints of excess donations impacting smaller businesses.
Immokalee recovery coordination committee and inter-agency
groups we had supported since Wilma, could not carry the
massive burden of the inbound resources. Turn-over and lack of
storm experience made integration of volunteer actions
challenging.
United Way support-Awesome, etc.
33
2.B.1
Packet Pg. 104 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Temporary Housing
Collier County has a temporary housing plan
We followed the plan….
Plan called for FEMA resources… we made all the necessary
accommodations for FEMA in our plan.
New this year and post Harvey, the additional efforts for FEMA
Direct Rental Assistance, which we believe has hampered the
unique situations for Immokalee and Everglades City.
Housing missions should remain at the Federal level .
Discovered a delay in the State approval of the mission, that
caused almost 2 week late start-up.
Sustainable housing, elevated housing and newer code
compliance efforts will generate the best long-term solution.
34
2.B.1
Packet Pg. 105 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Debris Removal
4 million cubic yard estimate
2-3 times the amount of debris from Wilma
Held the line on contract pricing
AshBritt came through with resources when the market was
strained by Hurricane Harvey
Solid path to solid reimbursement.
Keep looking ahead for processing sites
Commend the team on a revised ordinance for PPDR and
identification of a ROE process for FEMA approval.
35
2.B.1
Packet Pg. 106 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
FEMA Reimbursement
Remember its not an allocation, It’s a grant!
Entails manual documentation
Specific policy is written under the Stafford Act and newer FEMA
procurement SuperCircular.
NO local preferences can be instituted with any federal dollars.
Categories:
A Debris Removal
B Emergency Protective Measures
C Roads and Bridges
D Water Control Facilities
E Buildings and Equipment
F Utilities
G Parks, Recreational and other facilities.
36
2.B.1
Packet Pg. 107 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
FEMA Reimbursement Continued
Large funding efforts are typically Cat A & Cat B.
Approximate Estimates to Date:
Cat A: 25% of work completed-Estimate at completion $70-80
million.
Cat B: 80% of work completed-Estimate at completion $40-50
million.
DETAILED AND AGGRESSIVE REVIEW IS ON-GOING!
37
2.B.1
Packet Pg. 108 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Break or Question and Comments
Staff/BCC Q&A
Recap of focus areas for Board and Staff Action –See Next Slide
Public Comment
Adjourn
38
2.B.1
Packet Pg. 109 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Re-Cap Focus Areas for Board
and Staff Action
39
2.B.1
Packet Pg. 110 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Staff Proposed: For Board Consideration –Regulatory #1
1.Pursue either by legislative or regulatory requirements that
licensed health care facilities expand their on-site generator
capabilities to address cooling, extended generator fuel run times
and comprehensive generator testing and evaluation via a
certification process. Staff would also suggest that in the case of
new facilities that 7 day fuel supplies be required and have a
redundant connection for towable “plug and play” back-up
generators. In the event the current injunction on the emergency
order is upheld, Collier County should strongly consider drafting
such an ordinance.
2.Siting of future licensed health care facilities shall ensure all
efforts where appropriate to be sufficiently wind and flood
hardened so as to allow for safe shelter-in place.
40
2.B.1
Packet Pg. 111 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Staff Proposed: For Board Consideration Regulatory #2
To help address evacuation shelter deficits, new developments
outside of Cat 1,-3 Storm Surge Zones be required to hardened
club houses, amenity centers, etc., to Cat 3 windspeeds with a
standby generator operation supporting cooling and life safety,
with a 40 sqft. open space for 40% of the total number of
residential structures. Example: 300 homes =120 “units” X 40
sqft. =4800 sqft. of protected “in-community” shelter space.
Such global efforts for sheltering, hardening, generators, and in-
building public safety radio communications signal penetration
should be evaluated and considered for future amendments to
the LDC.
Current county facilities and proposed future county facilities
shall be studied to find opportunities for shelter
hardening/retrofit effort with emphasis on building capability for
Special Needs.
41
2.B.1
Packet Pg. 112 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Staff Proposed: For Board Consideration Regulatory #3
Through legislative or regulatory efforts strengthen the
emergency generator requirement for not only commercial fuel
stations near the interstate, but additional multi-pump stations
(TBD) inland. Current legislation has little to no enforcement.
Such efforts should include permanent on-site generator with
annual testing and operational certificates.
42
2.B.1
Packet Pg. 113 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Staff Proposed: For Board Consideration Regulatory #4
Propose a requirement for on-site permanent generator to be
required for certain wastewater lift stations owned or managed
by private entities.
Evaluate additional public and private critical infra-structure
locations including but not limited to licensed medical facilities
that operate around-the-clock, evacuation shelters, essential
service locations such as Fire, EMS, and Law Enforcement
operations to ensure permanent on-site generators are installed
and tested with a 96 hour fuel supply and a redundant
connection. Such plans shall be reviewed both by Emergency
Management and Building Inspections.
43
2.B.1
Packet Pg. 114 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Staff Proposed: For Board Consideration Regulatory #5
Florida Department of Health is responsible for the care of
Functional and Access Needs Clients during a disaster:
Emergency Management is responsible for the registry and
logistical support.
Through legislative consideration, the Florida Dept. of Health remains
critically short of nursing and support staff statewide during these disaster
events while trying manage more patients and more acute patients in the
shelter. Current health care financing concerns, offer no incentive for
hospitals to support temporary placement of the most critical special needs
clients. The State should be encouraged to substantially improve its
disaster health care field support capability and provide avenue for
hospitals to support temporary critical client placements.
44
2.B.1
Packet Pg. 115 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Staff Proposed: For Board Consideration Operational #1
Direct staff to seek additional opportunities to expand year-
around and surge capacity for county fuel. Efforts may include
but not be limited to:
Expanding fixed site capacity
Expanding the number of county owned fuel tenders for both bulk and
vehicle dispensing.
Expanding the number of “pony tanks” in support vehicles who can
dispense smaller quantities while in-transit.
Seek contracting opportunities for Vendor Managed inventory. (Bulk
ownership of fuel in the tank that is circulated.)
Procure indefinite quantity indefinite delivery vendors who specialize in
disaster response fueling support who have inventories, dispensing tankers
and resources outside of the region.
45
2.B.1
Packet Pg. 116 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Staff Proposed: For Board Consideration Operational #2
Seek opportunities in partnership with the District School Board
of Collier County for grants or new construction to address the
following:
Expand capability and reliability of current and future on-site generator
support and cooling systems to school buildings that serve as shelters. This
may include expanding the towable generator fleet owned by EM, as well as
inclusion of on-site generators for new construction with efforts to focus on
post-disaster grant opportunities.
Ensure all future middle and high schools are built to Enhanced Hurricane
Protection standards and where possible with accommodations made for
functional and access needs (Special Needs Clients)
Request on-site air conditioned storage at key shelter sites where possible
to extend the life of shelter supplies which will substantially reduce the
County’s logistical storage and deployment cost.
46
2.B.1
Packet Pg. 117 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Staff Proposed: For Board Consideration Operational #3
Consider directing Public Utilities Division to conduct an
assessment and provide a range of option for back-up power for
lift stations. Such efforts may include but not be limited to:
Stationary generator purchases at a tiered level.
Combination of rental and stationary delivery systems
Partnerships with FP&L or LCEC, whereby a generator “hub” could support
several critical infra-structure operations.
Seek grant opportunities for hardening and redundancy of primary and
secondary station operations.
47
2.B.1
Packet Pg. 118 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Staff Proposed: For Board Consideration Operational #4
Support the Emergency Management Division to continue efforts
to build depth in its Emergency Operations Center team from all
public and private sources.
Focus areas shall include:
Expanding and reinforcing public education efforts regarding emergency
messaging.
Continue to build local capability with supplies and equipment.
Continue efforts to expand technology capability for emergency messaging.
Consider restoring funding for a Donations and Volunteer coordinator to
build year-around capability and leverage for maximum benefit the
generosity of the community for the disaster survivor and taxpayer savings.
Seek funding sources to enclose the East Bay of the Emergency Services
Center to improve and extend the life of disaster supplies and inbound
commodities.
48
2.B.1
Packet Pg. 119 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Staff Proposed: For Board Consideration Policy #1
Seek opportunities and where appropriate consulting and technical
services to seek broad scope opportunities for post-disaster mitigation
grant funded opportunities.
Utilize the FEMA/State approved Local Mitigation Strategy plan and
process for project vetting.
Seek creative financing opportunities to include public and private
partnerships were feasible.
Evaluate future construction plans to find avenues for additional
shelter or disaster hardening and redundancy capability.
Make recommendations within the Land Development Code to find
future opportunities to help build a disaster resilient community and
strategies to break the damage repair cycle of disaster.
49
2.B.1
Packet Pg. 120 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Closing Remarks-
Supplemental Reports
Our sincere thanks to the
County and the Community!
Adjourn.
50
2.B.1
Packet Pg. 121 Attachment: Collier County_Hurricane Irma After Action Findings_final ppt v7a.lgp_ (007)
Collier County
Hurricane Irma Response
After-Action Report
October 31, 2017
2.B.2
Packet Pg. 122 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Administrative Handling Instructions Page 1
Hagerty Consulting, Inc. (“Hagerty”) provides this Collier County Hurricane Irma Response After-Action
Report (the “Deliverable”) pursuant to its contract with Collier County Board of County Commissioners (the
“Client”) dated October 9, 2017 (the “Contract”). Hagerty developed this Deliverable in a collaborative
effort with the Client, and made use of input from the Client. Hagerty does not, in providing this
Deliverable, make any representations about this Deliverable, oral or written, that change or are in addition
to those representations that Hagerty makes in the Contract. Hagerty states that its obligations and rights
with respect to this Deliverable are those expressly stated in the Contract. The only warranties to which
this Deliverable is subject are any applicable warranties that are stated in the Contract, and any such
warranties are subject to all limitations on warranties and exclusions of warranties that appear in the
Contract and that apply to this Deliverable. All other provisions of the Contract that relate to the product
to be provided by Hagerty, including statements about the performance and characteristics of that product,
and all limitations on any such statements, apply to this Deliverable. Further, Hagerty here affirms that all
limitations on its liability, any provisions for indemnification, any provisions for limited or exc lusive
remedies, and provisions for the forum or forums in which remedies may be sought, and all other applicable
provisions of the Contract, apply to this Deliverable, to the exclusion of any terms not set forth in the
Contract.
Hagerty intends this Deliverable to be used by the Client and by persons that are affiliated with the Client,
in the undertaking for which Hagerty prepared this Deliverable, and does not intend it to be used by any
other person or in any other manner. In supplying this Deliverable, Hagerty relies on the specialized
knowledge of the Client about how this Deliverable should be used and should not be used, and about how
it may have to be updated.
Hagerty advises any person that uses this Deliverable that Hagerty owes no duties with respect to this
Deliverable to any person other than the Client. Hagerty accepts no responsibility for the results of any use
or attempted use of this Deliverable by any person other than the Client.
2.B.2
Packet Pg. 123 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Administrative Handling Instructions Page 2
Administrative Handling Instructions
The Collier County Hurricane Irma Response After-Action Report identifies areas of strength and
opportunities for improvement based on the lessons learned associated with Collier County’s response to
Hurricane Irma from September 6, 2017, through September 16, 2017. This report is limited to observations
and analysis available through October 18, 2017, a month following Hurricane Irma. The analysis outlined
in this report represents an analysis of immediate or short-term issues.
Structurally, this document is aligned with the core capabilities identified by the federal government under
the National Preparedness Goal (NPG) and was developed leveraging planning meetings as outlined under
the Homeland Security Exercise and Evaluation Program (HSEEP).
The information contained in this document is current as of the date of publication, October 25, 2017. As
of the date of publication, hurricane response and recovery efforts are still ongoing.
Input for the After-Action Report (AAR) was sought from and provided by Collier County departments and
divisions under the County Board of Commissioners, as well as from Emergency Operations Center liaisons
from the Collier County Sherriff’s Office and the Collier County Public Schools. Appendix C: Interview
Schedule and Attendance provides the list of participating agencies.
For more information about this report, please use the following point of contact.
Dan Summers, Director
Collier County Bureau of Emergency Services
8075 Lely Cultural Pkwy
Naples, FL 34113
DanSummers@colliergov.net
239-252-3600
2.B.2
Packet Pg. 124 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Acknowledgements Page 3
Acknowledgements
A critical component of post-disaster processes is the identification of lessons learned to enable Collier
County to enhance their capabilities before the next hurricane. Almost 50 Collier County employees and
stakeholders took part in interviews and compiled their own findings to inform the Collier County Hurricane
Irma Response After-Action Report. Collier County thanks these individuals for their work to help develop
this report.
From the days preceding landfall through the weeks and months after the storm, countless community
members, volunteers, and government employees have been active to prepare for, respond to, and recover
from the impacts of the hurricane. As these efforts continue, Collier County would like to thank the
individuals, communities, and recovery teams that are actively involved in restoring the community and
maintaining Collier County’s state of excellence.
2.B.2
Packet Pg. 125 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Executive Summary Page 4
Executive Summary
The Collier County Hurricane Irma Response After-Action Report was requested by the Collier County Board
of Commissioners to help identify the strengths and challenges in Collier County’s emergency response
capabilities demonstrated from September 6, 2017, through September 16, 2017. This After-Action Report
(AAR) highlights the positive aspects of the response by Collier County, while also noting areas in which
there is room for improvement to improve response capabilities for future disaster. This report is not
intended to assign blame for actions or identify shortcomings, it is an opportunity to identify improvements
through the strategic organization of actions and assets. The AAR is a tool to be used as a roadmap for
future development and modifications of processes, as well as to ident ify priorities for procurement of
needed response assets.
Critical Priority Findings
The following are the critical priority findings from the Collier County Hurricane Irma Response After-Action
Report. These findings reference observations contained in the report that provide further analysis and
identified recommendations.
The pre-landfall public information campaign was successful, but communication with the public
was impacted post-landfall by power loss. (Observation 1, Observation 3)
Fuel shortages impacted County employees responding to the hurricane, private citizens, and
supply for generators. (Observation 5)
Shelter demand far exceeded the planning assumptions, requiring last minute coordination to open
sufficient number of shelters. (Observation 9, Observation 10)
Under State licensing, some assisted living facilities and long-term care facilities did not have
sufficient back-up power capabilities. (Observation 6)
While a large number of life-safety issues were presented in this event, the presence of strong
leadership and coordination and commitment at all levels led to successful operations to fulfill all
life-saving and sustaining missions. (Observation 17)
2.B.2
Packet Pg. 126 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Table of Contents Page 5
Table of Contents
1.0 Introduction ...................................................................................................................................... 6
1.1 Event Summary ............................................................................................................................. 6
1.2 Description of Data Sources .......................................................................................................... 7
2.0 Hurricane Irma Response Analysis .................................................................................................... 8
2.1 Public Information and Warning ................................................................................................... 9
2.2 Logistics and Supply Chain Management .................................................................................... 11
2.3 Mass Care Services ...................................................................................................................... 14
2.4 Operational Communications ...................................................................................................... 18
2.5 Operational Coordination ............................................................................................................ 20
2.6 Planning ....................................................................................................................................... 25
3.0 Corrective Actions Implementation Plan ......................................................................................... 31
Appendix A: Acronyms ................................................................................................................................ 32
Appendix B: Glossary ................................................................................................................................... 33
Appendix C: Interview Schedule and Attendance ....................................................................................... 36
Appendix D: Survey Results ......................................................................................................................... 38
Appendix E: Incident Timeline ..................................................................................................................... 44
Appendix F: Planning and Regulation Resources and NIMS Resolution ...................................................... 45
2.B.2
Packet Pg. 127 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Introduction Page 6
1.0 Introduction
On Sunday, September 10, 2017, Hurricane Irma made landfall in
Collier County bringing powerful winds, downing power lines,
uprooting trees, turning streets into rivers, and leaving a trail of
debris and devastation behind. Preparations in Collier County for
Irma started 5 days before landfall with close monitoring that
ramped up to a full activation of the Emergency Operations Center
(EOC) on September 8. Through the hard work and dedication of
Collier County employees, the County successfully responded to
one of the worst hurricanes in the County’s history.
The Collier County Hurricane Irma Response After-Action Report
was requested by the Collier County Board of Commissioners to
help identify the strengths and challenges in Collier County’s
emergency response capabilities. The findings are based on
lessons learned associated with Collier County’s response to
Hurricane Irma from September 6, 2017, through September 16,
2017. This After-Action Report (AAR) documents the positive
aspects of the response, while also noting areas in which there is
room for improvement. This report is intended to be used as a
roadmap for future development and modifications of processes,
and for the prioritization of the procurement of needed response
assets. It is not intended to place blame for any actions, or for anything to be seen as a shor tcoming, but
rather is an opportunity for improvement through the strategic organization of actions and assets.
Over the course of a week, Collier County personnel participated in interview sessions and provided
detailed information to help inform this report. The issues identified in this report should be referenced in
the coming months by each department to develop and implement corrective actions specific to their
emergency response roles and responsibilities.
As the County continues to recovery from Irma, additional after-action analysis will be undertaken to
incorporate city, private-sector, and volunteer agency perspectives.
1.1 Event Summary
Hurricane Irma made landfall in Marco Island at 3:35 PM EDT on September 10, 2017, as a Category 3
hurricane. Irma was an intimidating storm, having maintained Category 5 winds for longer than any other
Atlantic hurricane in recorded history, and causing severe impacts on Collier County:
Approximately five feet of storm surge and 7.5 to 11.5 inches of rainfall in different areas.
$325 million in estimated damage.
4.2 million cubic yards of estimated debris.
The storm had a massive impact on Collier County, and on the entire state. Hurricane Irma caused power
outages to almost 98 percent of the County, which had cascading impacts on communication services, and
resources across the state were delayed in staging areas due to the time it took the hurricane to travel
Collier County Bureau of Emergency
Services (BES) is comprised of the Collier
County Emergency Management
Division, Collier County Emergency
Medical Services, and Collier County the
District 20 Medical Examiner’s Officer.
The Collier County Emergency
Management Division holds the lead
responsibility for the coordination of all
disaster-related activities, including the
activation and operation of the Collier
County Emergency Operations Center
(EOC). The EOC is housed within the BES
building and serves as the central
coordination hub for all agencies,
departments, organizations, and other
response partners who have a role in
supporting the provision of services to
community.
2.B.2
Packet Pg. 128 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Introduction Page 7
through the length of Florida. These impacts affected the resources and procedures that Collier County had
identified before the storm, necessitating a large coordination effort from all response stakeholders to
ensure the provision of life-safety and life-sustaining services.
The supply of resources was also impacted by the national response to Hurricane Harvey two weeks prior
to Hurricane Irma. Additionally, the demand for services was higher than anticipated due to the forecasted
impact of the storm and the greater public awareness due in part to the national news stories about
Hurricane Harvey. Almost 8,000 more residents sought shelter than anticipated, and in the week leading
up to Hurricane Irma, there was a 75 percent increase in the number of registrants on the Collier County
Florida Special Needs Registry.
Collier County Bureau of Emergency Services (BES) fully activated its EOC on September 8, 2017, in
anticipation of the impending landfall of the major hurricane. During response, an estimated 180 partners
from over 60 agencies and departments played a role, either within the EOC or out in the field. An estimated
42,000 to 45,000 people in Collier County were ordered to evacuate their homes, with almost 18,000
people seeking refuge in one of the 30 shelters coordinated by BES and response partners.
1.2 Description of Data Sources
This report was compiled based on input provided through a series of 14 interviews conducted from
October 11, 2017 – October 18, 2017 with 48 representatives from Collier County departments and
divisions under the County Board of Commissioners, as well as with EOC liaisons from the Collier County
Sherriff’s Office and the Collier County Public Schools. The full list of participating agencies is documented
in Appendix C: Interview Schedule and Attendance. In addition to interview attendance, representatives
from participating agencies provided departmental or division after-action findings to inform the
development of the Collier County Hurricane Irma After-Action Report.
Information gathered from WebEOC, the emergency management coordination platform used in the EOC
during Hurricane Irma, was also referenced to inform these findings. In addition, pertinent Collier County
plans and policies were researched and referenced to complete these findings.
2.B.2
Packet Pg. 129 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 8
2.0 Hurricane Irma Response Analysis
The following sections identify and describe the strengths and opportunities for improvement related to
actions that Collier County took in preparation for and in response to Hurricane Irma. Both the strengths
and areas for improvement offer opportunities for Collier County to improve its response capabilities and
capacity for future incidents. The recommendations included in the sections below identify opportunities
for Collier County to address the lessons learned identified here to improve the County’s ability to provide
services in future incidents.
This analysis is strategically presented in alignment with core capabilities under the National Preparedness
Goal (NPG). The NPG provides a common taxonomy and framework for local, state, and federal agencies
to consider and increase their capabilities to prevent, prepare for, respond to, recover from, and mitigate
against the potential impacts of future disasters. The observations are organized first by Core Capability,
and then by strength and area for improvement, they are not organized in an order of overall priority.
The relevant core capabilities associated with the event and examined in this AAR are presented below.
National
Preparedness Goal
Core Capability
Definition
Public Information
and Warning
Deliver coordinated, prompt, reliable, and actionable information to the whole
community through the use of clear, consistent, accessible, and culturally and
linguistically appropriate methods to effectively relay information regarding any
threat or hazard, as well as the actions being taken and the assistance being
made available, as appropriate.
Logistics and Supply
Chain Management
Deliver essential commodities, equipment, and services in support of impacted
communities and survivors, including emergency power and fuel support, as
well as the coordination of access to community staples. Synchronize logistics
capabilities and enable the restoration of impacted supply chains.
Mass Care Services
Provide life-sustaining and human services to the affected population, including
hydration, feeding, sheltering, temporary housing, evacuee support,
reunification, and distribution of emergency supplies.
Operational
Communications
Ensure the capacity for timely communications in support of security,
situational awareness, and operations by any and all means available, among
and between affected communities in the impacted area and all response
forces.
Operational
Coordination
Establish and maintain a unified and coordinated operational structure and
process that appropriately integrates all critical stakeholders and supports the
execution of core capabilities.
Planning
Conduct a systematic process engaging the whole community as appropriate in
the development of executable strategic, operational, and/or tactical-level
approaches to meet defined objectives.
2.B.2
Packet Pg. 130 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 9
2.1 Public Information and Warning
The Public Information and Warning Core Capability includes the ability of the county to deliver
coordinated, prompt, reliable, and actionable information to the whole community through the use of
clear, consistent, accessible, and culturally and linguistically appropriate methods to effectively relay
information regarding any threat or hazard, as well as the actions being taken and the assistance being
made available. The following observations relate to this core capability and include recommendations to
enhance the County’s capabilities in the future. The observations are organized within this Core Capability
by strength and then area for improvement, they are not organized in an order of overall priority.
2.1.1 Strengths
The section below provides analysis on the observed strengths related to the Public Information and
Warning Core Capability.
Observation 1: Pre-Landfall Public Communication
The use of the County’s established traditional and social media platforms allowed for effective public
information and warning messages to be delivered before Hurricane Irma made landfall.
Analysis
The Public Information Officer (PIO) from the Communication
and Customer Relations Division coordinated with BES, Collier
County departments, and the Collier County Sherriff’s Office
to disseminate public information and warnings, ensuring
that all residents received timely and effective evacuation
information as the track of Hurricane Irma shifted. The PIO
leveraged Spanish and Creole language media and organization contacts, as well as an American Sign
Language contracted interpreter, to ensure the County’s messages were accessible to the largest possible
percentage of County residents. Additionally, the PIO utilized the Collier County website and social media
platforms, including Facebook live, to disseminate storm-related messages and provide real-time responses
to questions and misinformation.
The efforts of the PIO and public information stakeholders ensured that all County residents had reliable
and timely evacuation information to guarantee their safety before Hurricane Irma landfall. These efforts
over traditional and social media platforms, including through National Oceanic and Atmospheric
Administration (NOAA) weather radio and simulcasted television and radio stations, ensured that
information about Hurricane Irma was available to as many County residents as possible.
Observation 2: Hurricane Hotline
Collier County provided real-time response to community questions and needs via the 3-1-1 and Hurricane
Hotline services.
Analysis
The Administrative Services Department operated a phone bank with 16 stations, and 104 staff and
volunteers manning these stations, from September 6 – 22, 2017 to provide Collier County residents
information before the hurricane about preparedness efforts, including details about evacuation and
Collier County held 18 press conferences
and interviews in order to disseminate
information about Hurricane Irma to the
public.
2.B.2
Packet Pg. 131 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 10
sheltering procedures, and after the hurricane about response and recovery efforts. The 3-1-1 and
Hurricane Hotline services received at least an estimated 30,000 calls during this period. This service
ensured residents had a source for real-time information about Collier County services leading up to and
after the hurricane.
2.1.2 Areas for Improvement
The section below provides analysis on the observed areas for improvement related to the Public
Information and Warning Core Capability.
Observation 3: Communication Disruption due to Power Loss
The County’s ability to communicate with the public immediately after the storm was limited due to
widespread loss of power.
Analysis
The widespread loss of Internet and power during Hurricane Irma impacted Collier County residents’ ability
to receive communications, especially due to cell phone tower power outages, and highlighted the need to
be prepared for alternate methods of public information dissemination during future disasters. Text
messaging, broadcast radios, and community message boards are potential alternative methods that can
be employed when web-based and television communication methods are not available.
Recommendations
Identify and create procedures and pre-scripted messages to support alternative public
information messaging when web-based and television mediums are not available.
Continue to implement the Everbridge system purchased by FDEM as part of AlertFlorida to
support text message alerts during disasters.
2.B.2
Packet Pg. 132 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 11
2.2 Logistics and Supply Chain Management
The Logistics and Supply Chain Management Core Capability includes the ability of the county to deliver
essential commodities, equipment, and services in support of impacted communities and sur vivors, to
include emergency power and fuel support, as well as the coordination of access to community staples.
Synchronize logistics capabilities and enable the restoration of impacted supply chains. The following
observations relate to this core capability and include recommendations to enhance the County’s
capabilities in the future. The observations are organized within this Core Capability by strength and then
area for improvement, they are not organized in an order of overall priority.
2.2.1 Strengths
The section below provides analysis on the observed strengths related to the Logistics and Supply Chain
Management Core Capability.
Observation 4: Coordination to Support Resource Requests
EOC representatives coordinated to provide support to the Logistics and Disaster Resources Section in
order to ensure all critical resource requests were fulfilled.
Analysis
The EOC received over 500 logged resource requests during Hurricane Irma. The resource requests had the
potential to overwhelm the planned capacity of Emergency Support Function (ESF) #7 – Resource Support
and the Logistics and Disaster Resources Section. EOC representatives from supporting divisions
supplemented the Section to provide targeted support for critical requests, including fuel disbursement, to
ensure that there was no gap in life-saving or life-sustaining service provision.
2.2.2 Areas for Improvement
The section below provides analysis on the observed areas for improvement related to the Logistics and
Supply Chain Management Core Capability.
Observation 5: Fuel Shortages
The lack of fuel severely impeded the County’s ability to support emergency response efforts.
Analysis
The county’s disaster fuel vendor was unable to provide the level of support contracted, and the County’s
fuel reserve tanks were not fully filled before Hurricane Irma made landfall. The fuel shortage impeded the
County’s ability to supply full fuel reserves for operating generators at critical facilities and to fuel cars for
County employees providing response services. The County ensured all life-safety needs were met with the
available fuel supply.
Recommendations
Identify multiple fuel vendors, including those who specialize in disaster and those out of the
immediate region, with contract penalty clause to prevent future vendor shortages.
Identify all County assets that can be used for fuel distribution (e.g., department fuel trucks,
portable tanks for pickup trucks).
2.B.2
Packet Pg. 133 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 12
Explore potential public/private agreements with developers to build additional fuel storage
facilities at new private facilities (e.g., government pays for the storage component and helps with
permitting) for government use in a disaster.
Observation 6: Generators at Non-County Owned Critical Facilities
Not all non-Collier County owned or managed critical facilities, including private lift stations, shelter
facilities, nursing homes, and assisted living facilities, had adequate alternate power sources.
Analysis
Over 205,000 Florida Power and Light (FPL) customers in Collier County were without power after Hurricane
Irma. This meant that critical facilities not owned by the County, including private lift stations, shelters,
assisted living facilities, and nursing homes, relied on alternate power sources in order to provide services
for their residents. Many of the generators in these facilities were not adequate, or sufficiently maintained,
to provide these services. For example, the generator at Palmetto Ridge, which served as the Special Needs
Shelter, failed almost immediately after power loss. The backup generator only provided power for one
building, where the patients requiring oxygen were housed, and emergency lights in all remaining buildings.
The County maintains a supply of portable generators, and provided these as well as fuel as needed, to
ensure life-safety and life-sustaining services at these facilities. Additionally, Collier County Emergency
Medical Services (EMS), the Public Transit and Neighborhood Enhancement Division, and the Collier County
Public Schools provided vehicles with air conditioning to provide relief for clients in these facilities. The
County’s current supply of portable generators was insufficient to meet the demand due to increased
amount of shelters, as well as critical facilities in need of alternate power supply.
Recommendations
Work with non-County owned critical facilities to identify generator status, facility functions
supported by generators, and maintenance plan.
Prioritize list of critical facilities to receive portable generator support in a disaster based on fixed
or temporary needs.
Identify additional generator requirements, including on-site generators or portable generators, to
support all planned shelter facilities.
Identify and implement policy to require non-County owned critical facilities to maintain their
generators, test them with potential load on a regular (e.g., alternate power industry standard)
basis, and keep enough fuel in supply to support continued operation for up to three days.
Closely review the plans submitted by assisted living communities and nursing home facilities to
ensure their viability and to identify any areas where there may be too much reliance on one
vendor to supply fuel for the generators. BES should work with these facilities to make their plan
operationally effective by having the local authority to impose more stringent requirements than
the present rules from the Florida Agency for Health Care Administration.
2.B.2
Packet Pg. 134 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 13
Observation 7: Generators for County Owned Critical Facilities
Not all of the Collier County identified critical facilities, especially lift stations, have alternate power sources.
Analysis
There are over 425 lift stations in Collier County. While Collier County provides alternate power sources for
the majority of the critical facilities that they own or manage, the number of lift stations makes the
provision of alternate power sources for all of these economically non-viable. The failure of lift stations
during Hurricane Irma caused wastewater system failures and spills in limited areas across the County.
While Collier County maintains a supply of portable generators to meet the needs of these facilities, this
was not a sufficient supply to meet the high demand due to the large power outages in the immediate
aftermath of the storm. There was also a high national demand for generators in the aftermath of Hurricane
Harvey and the preparation for Hurricane Irma.
Recommendations
Prioritize list of critical facilities to receive portable generator support in a disaste r based on fixed
or temporary needs.
Identify additional generator requirements, including on-site generators or portable generators, to
support high demand for alternate power at County owned critical facilities.
Observation 8: Emergency Management Storage Space
The amount and logistics of the emergency management supply storage space is not adequate for efficient
storage or response-related distribution.
Analysis
The County maintains a cache of emergency supplies in
warehouse spaces in the Emergency Services Building. The
largest of these spaces is the East Bay, a non-
environmentally controlled space. Additionally, some
commodities are stored in trailers, which are exposed to
heat and humidity. The lack of adequate environmentally
controlled space results in loss of resources due to mildew,
and creates challenges for unloading commodities in the
East Bay during inclement weather. There are forklift and
liftgate capabilities at the East Bay site, but this space does
not have a loading dock to enable a more efficient
movement of supplies. This has caused delays in getting resources out to those who need them.
Recommendations
Renovate the existing emergency management covered parking area to include environmentally
controlled areas as well as a loading dock. Or Identify an alternative storage area that fully meets
the needs of the County.
Form agreements with potential shelter locations to build or convert on-site existing space to be
environmentally controlled supply storage to provide easier access for shelter operation and
substantially reduce the burden of storage on the Emergency Services Building.
Figure 1: Rain coming into the east bay storage area.
2.B.2
Packet Pg. 135 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 14
2.3 Mass Care Services
The Mass Care Services Core Capability includes the ability of the county to provide life-sustaining and
human services to the affected population, to include hydration, feeding, sheltering, temporary housing,
evacuee support, reunification, and distribution of emergency supplies. The following observations relate
to this core capability and include recommendations to enhance the County’s capabilities in the future. The
observations are organized within this Core Capability by strength and then area for improvement, they
are not organized in an order of overall priority.
2.3.1 Strengths
The section below provides analysis on the observed strengths related to the Mass Care Services Core
Capability.
Observation 9: Shelter Identification and Activation
The coordination between Collier County, Collier County Public Schools, and all response stakeholders
enabled the identification and activation of 29 shelters to ensure all residents had access to shelter services.
Analysis
Pre-hurricane Collier County plans allowed for staff, resources, and shelter locations to support
approximately 10,000 evacuees; an estimated 17,620 people sought shelter during Hurricane Irma. The
County, Collier County Public Schools, and all response stakeholders made heroic efforts to identify and
open 29 shelter locations in a 22-hour window between 1300 hours on September 8, 2017, when the first
shelters opened, and 1100 hours on September 9, 2017. These efforts to identify suitable locations, and
the resources to support these locations, ensured that all residents who needed sheltering services
received them during Hurricane Irma.
2.3.2 Areas for Improvement
The section below provides analysis on the observed areas for improvement related to the Mass Care
Services Core Capability.
Observation 10: Pre-Hurricane Shelter Planning
The pre-hurricane identification of available potential shelter locations and resources was insufficient for
the number of evacuees who sought shelter in Collier County facilities.
Analysis
As noted above, Collier County shelter plans identified space for approximately 10,000 people in 10 shelter
locations. During Hurricane Irma, the shelter demand was approximately 17,620. The Special Needs Shelter
was planned to have a capacity of 40 special needs clients, and there were 396 special needs clients that
were served at this facility during Hurricane Irma. As the County identified shelter locations, there was
sometimes a lack of awareness of the status of potential locations. One of these facilities, the University of
Florida's Institute of Food and Agricultural Sciences (IFAS) extension building, was evacuated due to
concerns of stability and suitability. The roof on the IFAS extension building failed due to high winds during
the storm, after it was evacuated of all shelter clients.
2.B.2
Packet Pg. 136 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 15
Table 1: Shelter Locations, Capacity, and Occupancy
Shelter Name Capacity Occupants During Irma
Sheltering
Ave Maria Field House 1000 500
Calusa Park 744 183
Corkscrew Middle School 1031 1000
Cypress Palm Middle School 1675 800
Eden Park Elementary 250 564
First Baptist Church Naples 150 250
Golden Gate Elementary 310 310
Golden Gate High School 1300 1300
Golden Gate Middle School 500 500
Golden Terrance Elementary 250 500
Gulf Coast High School 1018 1525
Highlands Elementary 420 420
Hodges University 250 250
Immokalee High School 1500 1500
Immokalee Middle School 450 450
Lake Trafford Elementary School 419 419
Laurel Oak Elementary School 250 315
Lely High School 750 1002
Mike Davis Elementary School 900 900
North Collier Regional Park 489 489
North Naples Middle School 500 500
Oak Ridge Middle School 500 512
Palmetto Ridge High School 880 880
Pine Crest Elementary School 875 875
Sabal Palm Elementary 250 287
St. Agnes Catholic Church 200 200
Temple Shalom 250 250
Veteran's Memorial Elementary 250 152
Village Oaks Elementary 250 427
Vineyards Elementary 175 360
Total Planned Shelter Capacity Total Number of Sheltered
8,562 17,620
Total Shelter Capacity
17,786
Key Pre-Planned Shelter Operated Over Capacity
2.B.2
Packet Pg. 137 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 16
Recommendations
Perform a shelter needs assessment to determine potential demand during future incidents,
including the demand for critical care and those with access and functional needs.
Perform shelter assessments on all potential shelter locations to determine vulnerability to
hazards, alternate power supply, and other suitability considerations. Assessments should include
a structural engineering component to determine the wind load capacity of the building.
Continue to work with neighboring counties on regional shelter planning efforts to leverage and
share resources.
Enforce Enhanced Hurricane Protection Area standards for retrofitted or new facilities.
Observation 11: Pre-Hurricane Shelter Resources
The County did not have an adequate numbers of pre-hurricane trained staff in all the activated shelters to
support the high shelter demand.
Analysis
The shelters were managed and staffed with a combination of Collier County employees, American Red
Cross volunteers, Collier County Public School employees in school facilities, and Florida National Guard
troops. The shelter staff were not all pre-identified and so did not all receive training in shelter processes
from Collier County BES before the hurricane, and there was reported confusion about who was
responsible for managing the shelter and making decisions. EOC Shelter Coordinators could not
communicate directly with schools and had to use school liaisons to pass and receive information. National
Guard troops were unfamiliar with shelter protocols, and they did not provide an opportunity in advance
of deployment to receive local coordinating instructions.
Recommendations
Develop a shelter management plan that involves all key parties and clearly specifies roles and
responsibilities. Consider developing these plans at an individual shelter facility level.
Expand the frequency and curriculum for the implementation of the annual shelter training
program to clearly communicate what shelter staff should expect while working at a shelter,
including information about what they should bring with them to care for themselves.
Develop an on-the-job abbreviated training that shelter staff can take immediately before being
activated to support shelter activities.
Observation 12: Pet Sheltering
The Governor publicly guaranteed that all shelters in the state would receive pets, but not all Collier County
shelters had the processes and resources in place for these services.
Analysis
Co-locating pets with their owners is now a national emergency management standard to ensure that all
people, including those with pets, will seek shelter during a disaster. Many shelters did not have supplies
to house pets (e.g., pet tarps, carriers, food), and they did not have pet policies defined. The County had to
pay for the cleanup of these facilities from minor damages made by pets.
2.B.2
Packet Pg. 138 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 17
Recommendations
Develop campaign about what owners should do with pets during a disaster; include this with pet
licensing materials the County sends to owners.
Perform a pet shelter needs assessment in alignment with sheltering needs assessment.
Determine resources needed to provide services in all sheltering locations.
Identify staffing resources needed to provide services in all sheltering locations; begin recruiting
and training staff.
Form a County Animal Response Team to coordinate with other county and state teams to help
develop a plan and policies, identify resources, and train potential pet sheltering staff.
Observation 13: Paratransit Services
There was insufficient paratransit transportation to take special needs residents to shelters.
Analysis
Residents needing paratransit transportation waited for hours to be picked up to be taken to shelters. The
demand was so great that paratransit providers were picking up evacuees long after their pre-determined
shut down time, up to the first bands of the storm, to ensure all evacuees made it into a shelter.
Recommendations
Coordinate with Public Transit and Neighborhood Enhancement Division to identify ways to reduce
the coordination time to dispatch paratransit.
Identify alternative solutions, using private companies or volunteer groups, such as cabs that have
wheelchair lifts, to support transportation efforts.
Expand the Special Needs Coordination team in the EOC to improve dispatch determination and
timing.
Observation 14: Post-Hurricane Support for Individuals with Continuing Care Needs
Due to the large county- and state-wide demand for healthcare services, there was insufficient available
support for individuals with access and functional needs that require continuing care after the storm.
Analysis
The County’s plan to provide services to those with access and function needs that require continuing care
after the storm is limited to the availability of resources from local or regional hospitals or nursing homes,
and the support from state departments to assist with client care and post-event placement. Due to the
large county- and state-wide impact of the storm, these resources were not available to assist Collier
County upon closure of the special needs/critical care shelter. Collier County had requested state support
to meet these needs; however, while the state offered five personnel from the Agency for Health Care
Administration, these personnel did not become available to assist the County. These services are essential
for providing care for individuals who cannot return to their previous living situation due to home damages
or because their daily care giver is not available.
Recommendations:
Identify additional mutual aid resources to engage before and after future incidents to support this
mission.
2.B.2
Packet Pg. 139 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 18
2.4 Operational Communications
The Operational Communications Core Capability includes the ability of the county to ensure the capacity
for timely communications in support of security, situational awareness, and operations by any and all
means available, among and between affected communities in the impact area and all response forces. The
following observations relate to this core capability and include recommendations to enhance the County’s
capabilities in the future. The observations are organized within this Core Capability by strength and then
area for improvement, they are not organized in an order of overall priority.
2.4.1 Strengths
The section below provides analysis on the observed strengths related to the Operational Communications
Core Capability.
Observation 15: Restoration of the Public Safety Radio System
Collier County was able to quickly restore full operations of the public safety radio systems to ensure
minimal disruption of communications immediately after the storm.
Analysis
A generator failure at the County Barn site and wind damage at three sites caused disruption to the radio
system operations and capabilities across the County. The Information Technology Division provided
support to restart the generator and verify system operations at the County Barn during Hurricane Irma,
and additional technicians began inspections and repairs on September 11 when the conditions were safe
for travel. This quick identification of system issues and completion of repairs needed for restoration
ensured that the disruption of the public safety radio system was minimal, and very short-term.
2.4.2 Areas for Improvement
The section below provides analysis on the observed areas for improvement related to the Operational
Communications Core Capability.
Observation 16: Communication Disruptions
Damaged infrastructure caused disruptions to multiple modes of communication during and immediately
after the storm.
Analysis
After Hurricane Irma made landfall, there were multiple failures in communications across different modes
of communication, causing intermittent loss in communications between the EOC and shelters and facilities
across the county, especially in Immokalee and Everglade City. As described above, there were areas with
low fault tolerance in the existing radio network and radio antenna damage that caused communication
outages along this mode of emergency service provider communication. Additional disruptions were
caused by loss of power, and inadequate alternate power supply, for cell towers and internet system
2.B.2
Packet Pg. 140 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 19
providers. This lack of communication capability impeded the County’s ability to coordinate some response
actions.
Recommendations
Evaluate and validate the new radio system when installation is complete in 2018 to ensure it
addresses the issues identified in radio pathway fault tolerance during Hurricane Irma.
Require that all departments and divisions identify their COOP locations to the IT Division to ensure
primary and alternate data and voice communications connectivity.
2.B.2
Packet Pg. 141 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 20
2.5 Operational Coordination
The Operational Coordination Core Capability includes the ability of the County to establish and maintain a
unified and coordinated operational structure and process that appropriately integrates all critical
stakeholders and supports the execution of core capabilities. The following observations relate to this core
capability and include recommendations to enhance the County’s capabilities in the future. The
observations are organized within this Core Capability by strength and then area for improvement, they
are not organized in an order of overall priority.
2.5.1 Strengths
The section below provides analysis on the observed strengths related to the Operational Coordination
Core Capability.
Observation 17: Incident Coordination and Leadership
While a large number of life-safety issues were presented in this event, the presence of strong leadership
and coordination and commitment at all levels led to successful operations to fulfill all life-saving and
sustaining missions.
Analysis
The response to Hurricane Irma was led from the EOC under the leadership of the Bureau of Emergency
Services (BES) Director, and supported by the County Manager, Deputy County Manager, and County
Attorney. All the Collier County partners who served in roles in the EOC and across the County to prepare
for and respond to the needs of the County residents during Hurricane Irma worked tirelessly together
under this leadership to ensure that they were identifying and addressing critical issues that arose
throughout the incident.
This was a complex incident, and there were many factors
that caused complications beyond the County’s control,
including the changing path of the storm, the heightened
awareness of consequences due to the recent impacts of
Hurricane Harvey, and a shortage of resources due to vendor
failures and national resources being previously deployed to
other parts of the country.
The strong coordination of Collier County BES and all departments and divisions ensured that any issue that
arose, as detailed in other sections of this report, was addressed as efficiently and effectively as possible
during the response to Hurricane Irma. This coordination was critical in ensuring that no fatalities occurred
as a result of evacuation operations, hurricane landfall, storm surge, structural failure, or re-entry
operations.
Observing operations in the EOC “pre-event
and post-event was one of the most
impressive things I've seen in my life. I'm
very proud of the work that was done here.”
-Jeff Klatzkow, County Attorney
2.B.2
Packet Pg. 142 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 21
2.5.2 Areas for Improvement
The section below provides analysis on the observed areas for improvement related to the Operational
Coordination Core Capability.
Observation 18: WebEOC Use
EOC staff found it difficult to maintain an adequate situational awareness of all events and resource needs
through WebEOC.
Analysis
WebEOC is an incident management tool that helps
maintain situational awareness and supports resource
management issues. Staff received information from
WebEOC, email, phone, and face-to-face interactions.
This was partially due to some personnel being
unfamiliar with WebEOC as they were assigned to the
EOC for the first time without the benefit of attending
previously offered monthly training, and it quickly
became difficult to maintain awareness of information
and resource requests in WebEOC without prior
training. This caused issues for situational awareness
in the EOC as well as in the call centers, which did not have adequate visibility of up-to-date information.
In some instances, the public was given misinformation about sheltering procedures or available locations
due the quickly filling shelters and data entry lag from County shelter workers or Red Cross.
Lack of awareness of command, control, coordination, and communication flow protocols inside the EOC
caused difficulty for EOC staff, as well as staff in the field relying on the EOC for information. If information
was being accurately captured by all partners in WebEOC, this would have alleviated some of the cr oss-
communication and difficulty in maintaining information integrity and awareness.
Recommendations
Provide all County employees with EOC responsibilities mandated training multiple times a year on
using and monitoring WebEOC to ensure all resource requests are made and tracked through this
system.
Develop a method to incentivize emergency management training—including Collier County-
specific procedures, FEMA Independent Study courses, EOC exercises, and Incident Management
Team concepts—for employees who take trainings to become proficient in their emergency
response-related role (e.g., four hours of comp time for every fifteen hours of approved trainings).
Remind EOC staff of the handy job aides at each workstation to ensure the use of command,
control, and coordination communication flow diagram included in the EOC reference binder.
Figure 2: WebEOC Significant Events board
2.B.2
Packet Pg. 143 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 22
Observation 19: Coordination with Immokalee
Communication system interruptions led to challenges in the coordination with government and non-
governmental organizations in Immokalee, resulting in barriers, and perceived barriers, in service provision.
Analysis
Communication system interruption and physical distance
contributed to challenges in coordination with Immokalee
residents. Previously established interagency and post
Hurricane Wilma coordination recovery committees were not
still functioning during Hurricane Irma, and they were not able
to reform to serve as a liaison to the County and with other
community groups, which resulted in a general lack of
awareness of activities in Immokalee, impacting decision
making, and leading to disorganized messaging of relief and
recovery efforts.
Recommendations
Sign an interlocal agreement with a suitable facility to
ensure its use as a satellite EOC during any activation
involving Immokalee.
Identify multiple liaisons from BES and other Collier
County departments who will staff the satellite EOC
with relevant operational structure and ESF representatives during an activation.
Assign responsibilities to liaisons to maintain robust community contacts in Immokalee year-round
to ensure lines of communication and coordination after a disaster, in coordination with a
Volunteer and Donations Manager if the position is approved.
Observation 20: External Resource Coordination Barriers
Two notable instances in barriers in coordinating with the State and deployed team resulted in delays to
temporary housing and volunteer and donations management missions.
Analysis
A request to the State of Florida for a temporary housing assessment for Immokalee and Everglade City
submitted on September 15, 2017, was delayed by the state for 10 days. BES followed procedures identified
in the 2010 Collier County Board of Commissioners Disaster Housing Strategy and confirmed during
Hurricane Irma response by the state and FEMA liaisons to request a temporary housing assessment as a
precursor to deployment of a direct temporary housing mission. The state did not process the request
appropriately because it was not a request for a temporary housing mission. This failure in communication
resulted in additional distress in these communities for residents whose housing loss threatened their
health, safety, and welfare. Additionally, the EOC experienced a barrier in coordination with an Incident
Management Team (IMT) that did not follow its mission assignment to support volunteer and donations
management efforts in Immokalee. The IMT wrote a recovery plan without input from the community. This
error was compounded after the plan was made public without validating the information contained within
the plan.
Figure 3: Food and water distribution at the Immokalee
Growth Management Department Office.
2.B.2
Packet Pg. 144 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 23
Recommendations
Coordinate with the Florida Division of Emergency Management to determine any additional
resource request protocols to ensure all requests receive timely consideration.
Ensure all IMT leadership meets directly with EOC leadership daily to address issues not typically
reported in traditional National Incident Management System (NIMS) reporting.
Observation 21: Public Perception of Service Provision
There is a reported public perception that Collier County was not at the forefront of service provision after
Hurricane Irma due to a lack of “branding” in the service provision.
Analysis
Reports from County staff in the field noted that the public did not fully recognize the service provision
efforts of Collier County. This was noted to be caused at least in part by the lack of “branding” in the field
(e.g., personnel in County shirts or hats, signs at points of distribution). This perception was somewhat
exacerbated by not timing the dispersal of press releases and information with the Sherriff’s Office. The
community’s perception of the County’s ability to provide services during and after a disaster is critical to
the success of continuing response and recovery efforts. While the Communication and Customer Relations
Division PIO coordinated with the Sherriff’s Office to validate and disseminate information, the timing of
the releases was not coordinated.
Recommendations
Establish a battle rhythm with all participating agencies to coordinate the timing, as well as
message, of press releases.
Provide better branding (e.g., shirts, hats, signs) for Collier County employees providing services in
the field.
Observation 22: EOC Layout
The current EOC layout does not adequately meet the needs of the County when the EOC is fully activated.
Analysis
Throughout the response, there was insufficient space to allow for coordination and completing essential
functions. For example, the Special Needs Phone Bank only had spaces for four to five positions during the
incident, but this was not enough staff to appropriately fill the needed amount of case workers due to the
most recent surge in clients with functional and special needs requirements, such as oxygen, skilled care,
and electricity dependent clients. Ensuring that all activated stakeholders have the ability to attend
briefings and have access to other response stakeholders is critical to ensuring coordination and situational
awareness.
2.B.2
Packet Pg. 145 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 24
Recommendations
Reconfigure existing and contiguous space to provide more room for Human Services, Finance,
Logistics, and Planning operations during an EOC activation.
Conduct an analysis to identify ways to maximize current space. Potential opportunities include:
Reprogram recently vacated space, formally used by Communications and Customer
Relations.
Attempt to reconfigure the in-house EOC audio and television view of EOC status and
activity, which was lost as a result of the forced migration from analog cable signals to
digital cable systems implemented by Comcast in 2015.
2.B.2
Packet Pg. 146 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 25
2.6 Planning
The Planning Core Capability includes the ability of the county to conduct a systematic process of engaging
the whole community as appropriate in the development of executable strategic, operational, and tactical-
level approaches to meet defined objectives. The following observations relate to this core capability and
include recommendations to enhance the County’s capabilities in the future. The observations are
organized within this Core Capability by strength and then area for improvement, they are not organized
in an order of overall priority.
2.6.1 Strengths
The section below provides analysis on the observed strengths related to the Planning Core Capability.
Observation 23: Available County Planning Resources
The Comprehensive Emergency Management Plan (CEMP) outlines all ESF functions and responsibilities
during a disaster.
Analysis
The CEMP is a critical resource for all departments, divisions, and other response stakeholders to identify
their role in the 18 Collier County ESFs and the responsibilities of these ESFs. Additionally, the CEMP
outlines the operational structure to enable communications, coordination, and information sharing during
an incident in the EOC and the field. This CEMP is used as a resource for departments and divisions when
identifying their pre- and post-disaster responsibilities and plans.
2.6.2 Areas for Improvement
The section below provides analysis on the observed areas for improvement related to the Planning Core
Capability.
Observation 24: EOC Finance Section
The County EOC needs to have a defined and named Finance Section staffing roster, with procedures and
sufficient trained staff to cover all EOC shifts.
Analysis
The County EOC does not have a defined Finance Section, outside of a Procurement Unit in the Logistics
and Disaster Resources Section, or enough qualified and trained staff assigned to serve in positions related
to a finance section. Without an EOC Finance Section to provide technical and back-up documentation
support to some of the procurement processes, generated additional efforts in the days to follow to
assemble back-up data. An expanded finance team, organized under NIMS principles of EOC operations,
could offer timely support for analysis and information sharing during an event
Recommendations
Expand the Finance Section with roles, responsibilities, and guidance in the CEMP.
Identify and assign staff from Collier County Corporate Financial and Management Services Division
and the Collier County Clerk’s Office to serve as dedicated EOC Finance Section staff when the EOC
2.B.2
Packet Pg. 147 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 26
is activated. Ensure that their day-to-day responsibilities are assigned to other employees so they
can fully dedicate themselves to the essential emergency response tasks.
Provide training on CEMP procedures to identified staff who will serve as finance section personnel
during EOC activation.
Observation 25: County Department and Division Emergency Plans
County department and division emergency plans did not comprehensively identify critical emergency roles
and responsibilities, resulting in employees that were not sufficiently trained to perform their disaster roles.
Analysis
Many of the County departments and divisions do not have fully
comprehensive plans that adequately identify all the necessary
emergency response tasks required or assign staff to support
specific activities. Many employees reported for duty but spent
a considerable amount of time waiting to be assigned to a task.
There was considerable confusion among staff that had been
trained to support shelter operations about their activation to
a shelter, especially if their department or division also assigned
them roles during the hurricane response. Others expressed confusion on what was expected of them
during an emergency response.
Recommendations
The County should engage in a countywide effort to revise emergency plans for each department
using established planning development tools. These plans should outline the critical roles and
responsibilities and be assigned to staff to complete. If BES is unable to support this effort given
critical staffing shortages, the County should procure external subject matter expertise to assist
with this task.
Upon completion of plans, each department should implement a comprehensive and annual
training and exercise program to ensure all staff understand their roles and responsibilities. These
efforts could be a part of, or separate from, the annual Collier County hurricane exercise.
Pre-script partial and full EOC activation messages to clearly state expectations for ESF staff both
serving in the EOC and the field.
Build a WebEOC county staffing data board that will allow all Department Directors an on-line tool
for assigning staff to EOC support roles or critical Departmental of Divisional assignments.
Observation 26: EOC Staffing
Some sections and ESFs within the County EOC did not have adequate staff for multiple shifts to complete
all required tasks within this complex incident.
Analysis
Many of the command staff in the EOC did not have adequate backup staff from County departments, as
well as positions traditionally filled by Fire Services or EMS personnel, to maintain multiple shifts during the
immediate response to Hurricane Irma. The ramifications of this were highlighted in the Logistics and
Disaster Resources, detailed elsewhere in this report, and the Planning Section. Due to limited Planning
Section staffing and many conflicting demands during Hurricane Irma, key pieces of information were not
Divisions that had comprehensive and up-to-
date hurricane response plans and/or clearly
identified and communicated employee
responsibilities before Hurricane Irma did
not experience major issues with employee
turnout.
2.B.2
Packet Pg. 148 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 27
able to be documented, such as specific shelter opening and closing times. Decisions on generator and fuel
allocation were often made without this critical information. Maintaining situational awareness and
establishing a common operational picture is critical to making informed response decisions.
Recommendations
Identify additional County staff that can support all shifts during EOC operations to ensure
adequate coverage of the Planning Section for extended operations.
Train newly-identified staff on Planning Section processes.
Research mutual aid partners that could be called upon to provide EOC support during an extended
emergency in all sections.
Prior to a disaster, obtain authorization to establish pre-disaster contingency contracts for EOC
support in all sections. Once this authorization has been provided for, identify external partners
(such as private consulting vendors or non-profit agencies) that can provide assistance.
Observation 27: EOC Logistics and Disaster Resources Section
The County does not have sufficient trained staff pre-identified to fulfill the responsibilities of a robust
Logistics and Disaster Resources Section.
Analysis
The Collier County emergency management resource management process requires a more
comprehensively staffed Logistics and Disaster Resources Section to appropriately manage resource
requests, fill and assign resources, track and monitor deployed resources, and demobilize assets once the
mission has been filled. Throughout the incident, logistics personnel were called away from the EOC to
support field activities, and there were not staff available to manage operations out of the warehouse.
Resource and logistics management is critical for an effective response. Without additional trained staff in
the Logistics and Disaster Resources Section to manage the operations in the EOC and warehouse, the
resource request and management process was sometimes delayed.
Additionally, to consistently maintain a strong readiness posture, BES Logistics employees carry out a series
of maintenance tasks for the response asset inventory, such as deliveries, cleaning, and other associated
tasks, that consume a significant amount of time that could instead be used for planning and working on
the strategic aspects of a strong readiness posture. Additional support from contract and existing County
department personnel would free BES experienced and trained employees to use their skills on their more
targeted planning and training tasks.
Recommendations
Hire a part-time Logistics Technician to improve preparedness efforts.
Identify and provide pre-disaster training for additional County staff that can support all logistics
section shifts in the EOC and warehouse.
Review the resource management process outlined in the Collier County CEMP to identify ways to
streamline and make the process less time-intensive and define a Supply Unit.
2.B.2
Packet Pg. 149 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 28
Observation 28: County Employee Disaster Services
Many County employees faced challenges in fulfilling their disaster response roles due to issues with shelter
and fuel provision.
Analysis
While the County had identified and opened a “county-employee” shelter, many employees were turned
away because of a misunderstanding in the policy, and others were turned away because it was only for
immediate family members. Employees sought refuge for their families at their workplace, which were not
equipped to serve as shelters. This was especially evident in the Emergency Services Building, where an
estimated 400 EOC and Sherriff’s Office staff and some family members sought shelter. The population was
higher than expected, due to the Sherriff’s Office activated strike teams of dispatchers for the 9-1-1 center
and mutual aid officers to prepare for anticipated needs. The high population exacerbated sanitation issues
caused by low water pressure and an in-building booster pump failure, as well as resulted in insufficient
space to allow assigned responders and critical EOC staff and relief personnel to rest and recharge to ensure
peak performance.
Employees, whether driving their own vehicles or County vehicles, did not always have adequate fuel to
report to work or carry out their responsibilities due to the regional and statewide shortage following the
impacts of both Hurricanes Harvey and Irma. While the County had identified County fueling stations that
were reserved for first responders such as fire and law enforcement, they were often turned away due to
confusion by the contractor operating the refueling sites from the Division of Emergency Management.
Recommendations
The County should conduct an assessment of the potential shelter needs of Sherriff’s Office, EMS,
and essential county employees. This assessment should also examine the need to support
employees’ extended families and the impact on employee performance if not addressed.
Once this assessment has been completed, the County should identify a facility that is suitable to
meet the needs, covering essential requirements such as essential county employee childcare and
facilities for pets.
The County should widely distribute the rules, policies, and procedures for utilizing the employee
shelter facility and ensure that those assigned to manage this shelter are fully trained.
Coordinate with Sherriff’s Office to identify alternative locations for mutual aid resources prior to,
during, and after a disaster.
The County should conduct a review of the fuel supply issue to identify potential solutions,
including alternative transportation options to support staff following an emergency, giving
consideration to increases in year-round fuel inventory, identifying multiple contract vendors
outside of the region with mobile dispensing capabilities, and priority designation for the County
employees as a second responder or essential emergency worker.
Observation 29: Initial Debris Management Communication s
While the debris management mission is progressing efficiently, earlier messaging to the public and site
identification could enhance these services, and the public perception of these services.
Analysis
Debris Management in response to Hurricane Irma has been managed in the weeks since Hurricane Irma
in a sufficient manner to clear an estimated 4.2 million cubic yards of horticultural and construction and
2.B.2
Packet Pg. 150 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 29
demolition debris; however, there are opportunities to take actions to further improve future large debris
management missions in the County. Some of the previously identified debris management sites were no
longer available either due to development or Florida Department of Environmental Protection concerns
that they were too wet at the time, thus hampering the debris collection efforts. Additionally, four cities
were identified as having mixed construction and demolition debris with vegetative debris, and some
hazardous materials on the curbside.
Recommendations
The County should revisit its Disaster Debris Management Plan to identify additional debris
management sites.
The revised plan should also include public messaging procedures and pre-scripted outreach
materials that PIOs and BES can use as part of annual hurricane preparedness outreach efforts as
well as specific hurricane messaging. The hurricane messaging can include the identification of
drop-off sites, once a pre-approved site has been chosen and debris management contractors are
positioned to monitor drop-off operations.
Observation 30: Emergency Management Trained and Focused PIO
Collier County does not have a full-time PIO trained in emergency management, or guidance relevant to
coordination with state or federal elected officials, which could have been leveraged to enhance the
County’s public information and external affairs efforts.
Analysis
The ESF #14 – Public Information appendix to the CEMP establishes roles and responsibilities for public
information, but it is limited to coordinating with the media and directly to the public through social media
or the county’s incident hotline. During a national incident like Hurricane Irma, state and federal elected
officials need to be continuously apprised of the situation, and the staff from the Communication and
Customer Relations Division were not trained in the external affairs aspects of the emergency management
public information mission. It is critical to have a trained full-time staff member and a standard process for
communicating with these officials to ensure their needs are being met and to obtain their support for
Collier County response and recovery efforts.
During the response to Hurricane Irma, BES employees coordinated with the Communication and Customer
Relations Division PIO to ensure the timeliness and effectiveness of the public messaging. While the
Communication and Customer Relations Division showed great strength in its ability to utilize available
media sources to reach all communities, they did not have a depth of knowledge in messaging related to
emergency management, response, and long-term recovery that a full-time PIO at BES would contribute to
the joint information coordination.
Recommendations
Engage mutual aid and Emergency Management Assistance Compact (EMAC) resources for
additional public information surge staffing.
Hire a full time PIO at BES to establish media and elected official relationships and procedures and
to lead joint information coordination with the Communication and Customer Relations Division
during future disasters.
Develop plans and procedures to support coordinating with state and federal elected officials.
2.B.2
Packet Pg. 151 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Hurricane Irma Response Analysis Page 30
Observation 31: Volunteer and Donations Management
There was a large influx of unsolicited donations and self-deployed volunteers in the aftermath of Hurricane
Irma, which could have been more efficiently coordinated by a Volunteer and Donations Manager.
Analysis
After Hurricane Irma passed, there was a large influx of
unsolicited donations and self-deployed volunteers to
Immokalee; an estimated 50 non-governmental and
governmental organizations were in Immokalee,
without a central point of contact to organize activities.
The volunteers coordinated with some members of the
community, but the large outpouring of volunteer and
donation support was not centrally organized. This
helped precipitate a perception of gaps in government
leadership after the storm passed. A full-time
Volunteer and Donations Manager at BES would
coordinate with local, state, and federal non-
governmental organization contacts to identify needed resources and manage volunteers, as well as
function as needed surge support within the Logistics Section.
Recommendation
Engage mutual aid and EMAC resources for volunteer and donations management surge staffing.
Hire a full time Volunteer and Donations Manager at BES to coordinate and form relationships with
local, regional, state, and national non-governmental volunteer organizations and manage the
Voluntary Organizations Active in Disaster (VOAD) and Community Organizations Active in Disaster
(COAD) groups to increase participation and communication to enhance coordination after a
disaster.
Figure 4: Unsolicited donations in Immokalee (Source: Mormon
Helping Hands)
2.B.2
Packet Pg. 152 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Corrective Actions Implementation Plan Page 31
3.0 Corrective Actions Implementation Plan
The Collier County Bureau of Emergency Services will submit a list of corrective actions after the
recommendations are discussed and priorities determined with the County Departments and Divisions.
2.B.2
Packet Pg. 153 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Appendix A: Acronyms Page 32
Appendix A: Acronyms
Acronym Definition
AAR After-Action Report
BES Collier County Bureau of Emergency Services
CMA County Manager Administrative Procedure
COAD Community Organizations Active in Disasters
COOP Continuity of Operations
EOC Emergency Operations Center
EMAC Emergency Management Assistance Compact
EMS Emergency Medical Services
ESF Emergency Support Function
HSEEP Homeland Security Exercise and Evaluation Program
IFAS University of Florida’s Institute of Food and Agricultural Sciences
IMT Incident Management Team
NIMS National Incident Management System
NOAA National Oceanic and Atmospheric Administration
NPG National Preparedness Goal
PIO Public Information Officer
SpNS Special Needs Shelter
VOAD Volunteer Organizations Active in Disasters
2.B.2
Packet Pg. 154 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Appendix B: Glossary Page 33
Appendix B: Glossary
AlertFlorida: A statewide emergency notification initiative sponsored by the Florida Division of Emergency
Management
Core Capability: 32 identified activities in the National Preparedness Goal that address the greatest risks to
the nation. This report pertains to:
Planning- Conduct a systematic process engaging the whole community as appropriate in the
development of executable strategic, operational, and/or tactical-level approaches to meet
defined objectives.
Operational Coordination- Establish and maintain a unified and coordinated operational structure
and process that appropriately integrates all critical stakeholders and supports the execution of
core capabilities.
Public Information and Warning- Deliver coordinated, prompt, reliable, and actionable information
to the whole community through the use of clear, consistent, accessible, and culturally and
linguistically appropriate methods to effectively relay information regarding any threat or hazard,
as well as the actions being taken and the assistance being made available, as appropriate.
Logistics and Supply Chain Management- Deliver essential commodities, equipment, and services
in support of impacted communities and survivors, to include emergency power and fuel support,
as well as the coordination of access to community staples. Synchronize logistics capabilities and
enable the restoration of impacted supply chains.
Mass Care Services- Provide life-sustaining and human services to the affected population, to
include hydration, feeding, sheltering, temporary housing, evacuee support, reunification, and
distribution of emergency supplies.
Operational Communications- Ensure the capacity for timely communications in support of
security, situational awareness, and operations by any and all means available, among and between
affected communities in the impact area and all response forces.
Emergency Support Function (ESF): The structure for coordinated governmental interagency support for
response to an incident. In Collier County, the ESFs are:
ESF 1: Transportation
ESF 2: Communications
ESF 3: Public Works & Engineering
ESF 4: Firefighting
ESF 5 Planning and Intelligence
ESF 6: Mass Care
ESF 7: Resource Support
ESF 8: Health, Medical, & Human Services
ESF 9: Urban Search & Rescue
ESF 10: Hazardous Materials
ESF 11: Food & Water
ESF 12: Energy
ESF 13: Military Support
ESF 14: Public Information
2.B.2
Packet Pg. 155 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Appendix B: Glossary Page 34
ESF 15: Volunteers & Donations
ESF 16: Law Enforcement
ESF 17: Animal Issues
ESF 18: Business & Industry
Emergency Operations Center (EOC): A central command and control facility responsible for carrying out
the principles of emergency preparedness and emergency management, or disaster management
functions at a strategic level during an emergency
Hurricane Category: The Saffir-Simpson Hurricane Wind Scale is the classification system used to denote
the strength of a hurricane based on estimated potential property damage. This scale is a 1 to 5 rating
based on a hurricane’s wind speed. Category 3 hurricanes and higher are considered major hurricanes
because of their potential to cause significant loss of life and damage.
Table 2: Saffir -Simpson Hurricane Wind Scale, NOAA National Hurricane Center
Category Sustained Winds Types of Damage Due to Hurricane Winds
1
74-95 mph
64-82 kt
119-153 km/h
Very dangerous winds will produce some damage: Well-
constructed frame homes could have damage to roof, shingles,
vinyl siding and gutters. Large branches of trees will snap and
shallowly rooted trees may be toppled. Extensive damage to
power lines and poles likely will result in power outages that could
last a few to several days.
2
96-110 mph
83-95 kt
154-177 km/h
Extremely dangerous winds will cause extensive damage: Well-
constructed frame homes could sustain major roof and siding
damage. Many shallowly rooted trees will be snapped or uprooted
and block numerous roads. Near-total power loss is expected with
outages that could last from several days to weeks.
3
(major)
111-129 mph
96-112 kt
178-208 km/h
Devastating damage will occur: Well-built framed homes may incur
major damage or removal of roof decking and gable ends. Many
trees will be snapped or uprooted, blocking numerous roads.
Electricity and water will be unavailable for several days to weeks
after the storm passes.
4
(major)
130-156 mph
113-136 kt
209-251 km/h
Catastrophic damage will occur: Well-built framed homes can
sustain severe damage with loss of most of the roof structure
and/or some exterior walls. Most trees will be snapped or
uprooted and power poles downed. Fallen trees and power poles
will isolate residential areas. Power outages will last weeks to
possibly months. Most of the area will be uninhabitable for weeks
or months.
5
(major)
157 mph or higher
137 kt or higher
252 km/h or higher
Catastrophic damage will occur: A high percentage of framed
homes will be destroyed, with total roof failure and wall collapse.
Fallen trees and power poles will isolate residential areas. Power
outages will last for weeks to possibly months. Most of the area
will be uninhabitable for weeks or months.
2.B.2
Packet Pg. 156 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Appendix B: Glossary Page 35
Special Needs Shelter: A shelter for people who have special needs according to the definition in the Florida
Administrative Code (Chapter 64-3):
"someone who during periods of evacuation or emergency, requires sheltering assistance, due to
physical impairment, mental impairment, cognitive impairment or sensory disabilities"
The basic eligibility criteria to stay in a special needs shelter are:
1. Special medical needs
2. Needed care exceeds the basic first aid provided at general population shelters
3. Impairments or disabilities are medically stable and do not exceed the capacity, staffing and
equipment of the special needs shelter to minimize deterioration of the individual’s pre-event
level of health
WebEOC: An internet-based platform allowing for secure and real-time sharing of information related to
management of emergencies among emergency management personnel, first response agencies, and
cooperating agencies.
2.B.2
Packet Pg. 157 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Appendix C: Interview Schedule and Attendance Page 36
Appendix C: Interview Schedule and Attendance
Date and Time Agency/Interview Topic Group Attendees
October 11, 2017,
8:30 – 9:30 am Emergency Services
Dan Summers
Mike Shaw
Rick Zyvoloski
Christine Boni
Kathy Heinrichsberg
Lauren Bonica
Melanie Collins
John Neuman
October 11, 2017,
10:15 – 11:15 am Administrative Services
Len Price
Mike Sheffield
Ted Coyman
Jeff Walker
October 11, 2017,
11:30 am – 12:30 pm Administrative Services
Dan Croft
Travis Gossard
Mario Menendez
Mike Burks
Ron Miller
October 11, 2017,
1:45 – 5:15 pm Public Services
Tanya Williams
Steve Carnell
Barry Williams
Ilonka Washburn
Rick Garby
Darcy Andrade
Sean Callahan
October 12, 2017,
8:30 – 9:30 am County Manager and Attorney Nick Casalanguida
Jeff Klatzkow
October 12, 2017,
10:00 – 11:00 am
Corporate Business and Community
Redevelopment
Tim Durham
Deborah Forester
Geoff Williy
October 12, 2017,
11:15 am – 12:15 pm Business and Economic Development Ed Caum
October 12, 2017,
1:45 pm – 2:45 pm Transportation
Michelle Arnold
Don De Tesso
Braian Morales
October 12, 2017,
3:00 – 4:00 pm Community and Human Services Lauren Bonica
Louise Pelletier
October 12, 2017,
4:15 – 5:00 pm Shelters
Melanie Collins
Tim Kutz
Kathleen Marr
Amy Lyberg
October 13, 2017,
8:30 am – 12:30 pm Public Utilities
Beth Johnssen
Alister Burnett
Dennis Linquidi
2.B.2
Packet Pg. 158 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Appendix C: Interview Schedule and Attendance Page 37
Date and Time Agency/Interview Topic Group Attendees
October 13, 2017,
1:45 – 2:45 pm Public Safety and Emergency Services
Chief Tabatha Buther
Sgt. Jose Carillo
Artie Bay
October 13, 2017,
2:45 – 3:45 pm Airports Justin Lobb
October 17, 2017,
9:00 – 10:00 am Information Technology John Daly
Mike Berrios
2.B.2
Packet Pg. 159 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Appendix D: Survey Results Page 38
Appendix D: Survey Results
A survey was conducted with Hurricane Irma response partners from October 18-20, 2017. The purpose of
this survey was to gather information about Hurricane Irma response from the point at which the Collier
County government and Emergency Operations Center (EOC) began preparation activities on September
6, 2017 through September 16, 2017. The survey consisted of 27 questions and received 139 responses.
A list of the survey questions is included below as well as analytics from key survey questions. The survey
is hosted on Emergency Management’s Survey Monkey account and all specific responses can be accessed
through that account.
2.B.2
Packet Pg. 160 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Appendix D: Survey Results Page 39
Hurricane Irma Response After Action Survey Questions
1. Did you serve primarily in the Collier County Emergency Operations Center (EOC) or in the field
during Hurricane Irma response?
2. What Emergency Support Function (ESF) did you serve during Hurricane Irma response?
3. What was your role in the Collier County Hurricane Irma response?
4. What was your organization’s mission during the first week?
5. What were your responsibilities related to this mission upon activation?
6. Did you have responsibilities outside of the scope of this mission? If so, what were some of the
activities you performed that were outside of your expected or perceived scope?
7. What were your responsibilities throughout this first week?
8. Did your responsibilities evolve or change throughout this week?
9. Who did you coordinate primarily with during the first week?
10. What information did you rely on during the first week to enable decision-making and ensure you
could meet your mission?
11. Who did you receive this information from?
12. How did you receive this information?
13. Did you experience any issues in receiving this information?
14. Was the coordination with other agencies and organizations during the week adequate to ensure
you had the support needed to meet your mission?
15. Did you experience any issues in coordination during the week?
16. What programs or systems do you consider to be your primary tools to accomplish your mission or
responsibilities throughout the first week?
17. Did you reference any plans or procedures during your activation? Which ones?
18. What operational tools did you use during your activation?
19. Did you experience any gaps in achieving your mission or responsibilities during the first week?
20. What were the causes, or potential causes, of these gaps?
21. Do you have examples of achievements or successes, where you worked to overcome a complex
issue or a gap?
22. Please Check All That Apply: How did you receive incident-related information during Hurricane
Irma?
23. What was your experience with notifications and receiving information related to this event?
24. Did you feel that you had adequate information related to the storm and preparedness activities?
25. How helpful was the available information for your organization and its needs?
26. What was your experience with WebEOC in this event?
27. To what level do you feel that organizations were working together collaboratively during this
event?
2.B.2
Packet Pg. 161 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Appendix D: Survey Results Page 40
Key Analytics
Question 2: What ESF did you serve during Hurricane Irma Response? (139 total responses)
Question 10: What information did you rely on during the first week to enable decision-making and ensure
you could meet your mission?
Meetings
Supervisor/Manager/Director
Emails
Briefings
0 5 10 15 20 25
Other
ESF 18: Business & Industry
ESF 17: Animal Issues
ESF 16: Law Enforcement & Security
ESF 15: Volunteers & Donations
ESF 14: Public Information
ESF 13: Military Support
ESF 12: Energy
ESF 11: Food & Water
ESF 10: Hazardous Materials
ESF 9: Search & Rescue
ESF 8: Health & Medical
ESF 7: Resource Support
ESF 6: Mass Care
ESF 5: Planning & Intelligence
ESF 4: Fire
ESF 3: Public Works
ESF 2: Communications
ESF 1: Transportation
2.B.2
Packet Pg. 162 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Appendix D: Survey Results Page 41
EOC
Reports
Question 11: Who did you receive this information from?
EOC
Staff/Personnel
Supervisor/Manager/Director
Question 12: How did you receive this information?
E-mail
Phone
Radio
Verbally
EOC
Question 16: What programs or systems do you consider to be your primary tools to accomplish your
mission or responsibilities throughout the first week?
WebEOC
Phone
Radio
Email
Question 22: Please check all that apply: How did you receive incident-related information during Hurricane
Irma? (90 total responses)
0 10 20 30 40 50 60 70
Other
Email
WebEOC
Websites
Internal Communications
2.B.2
Packet Pg. 163 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Appendix D: Survey Results Page 42
Question 23: What was your experience with notifications and receiving information related to this event?
(90 total responses)
Question 24: Did you feel that you had adequate information related to the storm and preparedness
activities? (90 total responses)
0 5 10 15 20 25 30 35 40 45 50
Negative
Neutral
Fair
Excellent
0 5 10 15 20 25 30 35 40
Strongly Disagree
Somewhat Disagree
Somewhat Agree
Strongly Agree
2.B.2
Packet Pg. 164 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Appendix D: Survey Results Page 43
Question 26: What was your experience with WebEOC in this event? (90 total responses)
Question 27: To what level do you feel that organization were working together collaboratively during the
event? (90 total responses)
0 5 10 15 20 25 30 35 40
Did Not Use
Not At All Helpful
Somewhat Helpful
Very Helpful
0 10 20 30 40 50 60
Poor
Fair
Strong
2.B.2
Packet Pg. 165 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Appendix E: Incident Timeline Page 44
Appendix E: Incident Timeline
Day Key Events
Sept 5, 2017 Collier County begins response coordination activities
291 new Special Needs registries were entered
Sept 7, 2017 Additional animal sheltering request
Hurricane-related traffic congestion noted on I-75, US-41, and SR
27.
NWS issues hurricane WATCH
EOC partially activated
Shelter employee activation
Sept 8, 2017
NWS issues hurricane WARNING
Special Needs Shelter (SpNS) transportation begins
EOC fully activated
SpNS opens
Marco Island mandatory evacuation issued
Mandatory evacuations for Goodland, Everglades City, and
Chokoloskee in effect. Mobile homes strongly advised to evacuate.
Eight General Population Shelters open
Mass telephone notification sent to 1300 people to identify special
needs transport or a traditional transport.
Mandatory evacuations added for people living west and south of
U.S. 41
Four General Population Shelters noted as full
Three additional General Population Shelters opened
Nine General Population Shelters noted as full
Sept 9, 2017
Five additional General Population Shelters open
Evacuation Zone expanded
SpNS noted as full with a population of 421
Sept 10, 2017
Presidential Emergency Disaster Declaration
Two hospitals on generator power
Approximately 196,000 Florida Power & Light Customers in Collier
County without power.
Pet Friendly Shelter at North Collier Regional Park housing 118
animals experienced flooding under the doors into the area where
the animals belonging to owners at the SPNS and first
responders/essential personnel. The dogs and cats had to be
relocated to another area of the shelter.
SpNS noted as full with a Population of 524
Major Disaster Declaration for Charlotte, Collier, Hillsborough, Lee,
Manatee, Miami-Dade, Monroe, Pinellas and Sarasota.
Sept 11, 2017 5 General Population Shelters Open
Sept 14, 2017
Memory care clients at SpNS moved to alternate room due to lack of
air conditioning
SpNS population noted as 262
2.B.2
Packet Pg. 166 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Appendix F: Planning and Regulation Resources Page 45
Appendix F: Planning and Regulation Resources
2.B.2
Packet Pg. 167 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Appendix F: Planning and Regulation Resources Page 46
Regulatory
Local Responsibilities - Chapter 252.38, Florida Statute (http://www.leg.state.fl.us)
Chapter 38 of the Code of Laws (Civil Emergencies) contains the following sections: Article I.
Post-Disaster Recovery and Reconstruction Management; Article III. Declaration of State of
Emergency and Article IV. Automotive Fuel Allocation.
Collier County Resolution 90-286: "Resolution authorizing the execution and acceptance of an
agreement between Collier County and other Florida Counties and Municipalities for Public
Works Mutual Aid..."
Office of the County Manager, Administrative Code 5900: "Cessation of Normal Government
Activities, Personnel Roles and Responsibilities during Emergencies and Emergency Disaster Pay"
Florida Executive Order 80-29
2.B.2
Packet Pg. 168 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Appendix F: Planning and Regulation Resources Page 47
Planning
Collier County Comprehensive Emergency Management Plan (2016)
2010 Southwest Florida Regional Planning Council’s Regional Hurricane Evacuation Study
(http://www.swfrpc.org/evac_study.html)
Florida Comprehensive Emergency Management Plan (http://www.floridadisaster.org/cemp.htm)
Florida Handbook for Disaster Assistance
(http://www.floridadisaster.org/documents/disasterhandbook.pdf)
2016 Statewide Emergency Shelter Plan
(http://www.floridadisaster.org/Response/engineers/library.htm)
State of Florida Resource and Financial Management Policy and Procedures
(http://bit.ly/2anzAGI)
Federal Disaster Assistance Program - Title 44, Code of Federal Regulations, Part 206
(http://bit.ly/2aYgPtj)
National Response Framework (http://floridadisaster.org/documents/nrf-core.pdf)
2.B.2
Packet Pg. 169 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Appendix F: Planning and Regulation Resources Page 48
2.B.2
Packet Pg. 170 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)
Collier County Hurricane Irma After-Action Report
Appendix F: Planning and Regulation Resources Page 49
>end of report<
2.B.2
Packet Pg. 171 Attachment: Collier County_Hurricane Irma AAR_FINAL DRAFT V5 (4088 : Hurricane Irma After Action Workshop)