Backup Documents 04/20/2004 W
BOARD OF COUNTY
COMMISSIONERS
WORKSHOP MEETING
WITH COLLIER COUNTY PLANNING
COMMISSION
April 20, 2004
COLLIER COUNTY
BOARD OF COUNTY COMMISSIONERS
~
JOINT WORKSHOP
AGENDA
April 20, 2004
9:00 a.m.
Donna Fiala, Chairman, District 1
Fred W. Coyle, Vice-Chair, District 4
Frank Halas, Commissioner, District 2
Tom Henning, Chairman, District 3
Jim Coletta, Commissioner, District 5
NOTICE: ALL PERSONS WISHING TO SPEAK ON ANY AGENDA ITEM
MUST REGISTER PRIOR TO SPEAKING. SPEAKERS MUST REGISTER
WITH THE COUNTY MANAGER PRIOR TO THE PRESENTATION OF THE
AGENDA ITEM TO BE ADDRESSED.
COLLIER COUNTY ORDINANCE NO. 2003-53, AS AMENDED, REQUIRES
THAT ALL LOBBYISTS SHALL, BEFORE ENGAGING IN ANY LOBBYING
ACTIVITIES (INCLUDING, BUT NOT LIMITED TO, ADDRESSING THE
BOARD OF COUNTY COMMISSIONERS), REGISTER WITH THE CLERK TO
THE BOARD AT THE BOARD MINUTES AND RECORDS DEPARTMENT.
REQUESTS TO ADDRESS THE BOARD ON SUBJECTS WHICH ARE NOT ON
THIS AGENDA MUST BE SUBMITTED IN WRITING WITH EXPLANATION
TO THE COUNTY MANAGER AT LEAST 13 DAYS PRIOR TO THE DATE OF
THE MEETING AND WILL BE HEARD UNDER "PUBLIC PETITIONS".
ANY PERSON WHO DECIDES TO APPEAL A DECISION OF THIS BOARD
WILL NEED A RECORD OF THE PROCEEDINGS PERTAINING THERETO,
AND THEREFORE MAY NEED TO ENSURE THAT A VERBATIM RECORD
OF THE PROCEEDINGS IS MADE, WHICH RECORD INCLUDES THE
TESTIMONY AND EVIDENCE UPON WHICH THE APPEAL IS TO BE BASED.
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April 20, 2004
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ALL REGISTERED PUBLIC SPEAKERS WILL RECEIVE UP TO FIVE (5)
MINUTES UNLESS THE TIME IS ADJUSTED BY THE CHAIRMAN.
IF YOU ARE A PERSON WITH A DISABILITY WHO NEEDS ANY
ACCOMMODATION IN ORDER TO PARTICIPATE IN THIS PROCEEDING,
YOU ARE ENTITLED, AT NO COST TO YOU, TO THE PROVISION OF
CERTAIN ASSISTANCE. PLEASE CONTACT THE COLLIER COUNTY
FACILITIES MANAGEMENT DEPARTMENT LOCATED AT 3301 EAST
TAMI~MI TRAIL, NAPLES, FLORIDA, 34112, (239) 774-8380; ASSISTED
LISTENING DEVICES FOR THE HEARING IMP AIRED ARE AVAILABLE IN
THE COUNTY COMMISSIONERS' OFFICE.
1. PLEDGE OF ALLEGIANCE
2. EAR (EVALUATION AND APPRAISAL REPORT)
3. ADJOURN
2
April 20, 2004
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DATE:
April 9, 2004
TO:
Board of County Commissioners
Collier County Planning Commission
Stan Litsinger, Alcp,'¡~ehensive Planning Director
FROM:
SUBJECT:
Joint CCPC/BCC Workshop - Second Evaluation & Appraisal Report (EAR) on
the Collier County Growth Management Plan (GMP)
This voluminous notebook comprises the draft proposed EAR and is a continuing work in
progress. The staff goal of your joint workshop on April 20, 2004 is to present Commissioners
and the public the most salient issues addressed in this second EAR on the Growth
Management Plan and receive public comment and final direction from Commissioners on
content for preparation of the proposed final EAR for adoption by the BCC upon
recommendation by the CCPC. This EAR does not have the effect of amending the GMP, but
will outline needed EAR based amendments that will follow a finding of sufficiency of the EAR
by DCA. Although many hours of staff time has gone into the preparation of this draft EAR, your
staff considers it to be a living document or planning palette for Commissioners to establish new
policy direction or revise existing policy guidance for the Growth Management Plan. The
significant contributions of the Golden Gate Area Master Plan Restudy and the Immokalee Area
Master Plan Restudy Committees should be noted.
Preparation of this second EAR on the GMP has been both a challenge and an opportunity for
staff. A challenge from the perspective that the County has just recently adopted the complex
and innovative Rural Lands Stewardship Area and Rural Fringe amendment to the GMP which
resulted from the Final Order generated by the first EAR in 1997. It proposes an opportunity to
build on a sound foundation as we embark on the implementation period, that will be fully
assessed by the third EAR in 2010-2011.
One of the important statutory requirements for the second EAR is the preparation of a Water
Supply Facilities Work Plan (WSFWP). The Collier County PUED has developed a Collier
County WSFWP, which is integral to the EAR and is being introduced to Commissioners in this
notebook. Also, subsequent to the delivery of these notebooks, which we wanted
Commissioners to have 10 days before the April 20 workshop, you will receive additional
analysis items and maps which expand on the draft EAR content.
Following the April 20, 2004, staff will prepare the final proposed EAR for public hearing before
the CCPC on July 15, 2004 and adoption by the BCC on July 27,2004. Following EAR
adoption, the DCA will conduct a sufficiency review within 60 days. Upon a sufficiency finding,
the County will commence preparation of identified EAR based amendments to the GMP.
If you have any questions or need assistance with the Draft EAR prior to the April 20 workshop,
please feel free to call.
WORKSHOP DRAFT
SECOND EV ALUA TION & APPRAISAL REPORT
FOR THE COLLIER COUNTY GROWTH MANAGEMENT PLAN
INTRODUCTION AND EXECUTIVE SUMMARY
I. Introduction & Process:
Introduction:
Chapter 163, Part II, Florida Statutes (F.S.), also known as the Local Government
Comprehensive Planning Act, requires all local governments within the State of Florida
to maintain comprehensive planning programs and to prepare and maintain a local
government comprehensive plan. As part of this process, the local government must
monitor changing conditions and must use this information to guide periodic amendments
to the local comprehensive plan.
The periodic amendment process, which occurs approximately every five to seven years,
as described in Chapter 163.3191, F.S., is a two-phase process. It begins with the
preparation, by the local government, of an Evaluation & Appraisal Report (EAR). The
EAR evaluates the performance of the various Elements of the local government
comprehensive plan since the previous EAR-based amendment process. It assesses the
successes and failures of the various Goals, Objectives, Policies and Programs included
within the local comprehensive plan and provides recommendations for necessary
changes. Additionally, the EAR is the primary means by which the local plan can
respond to changes in Federal, State or Regional planning requirements.
Ultimately, the recommendations contained in the EAR become the basis of proposed
amendments to the local government comprehensive plan. These EAR-based
amendments, as adopted by the local governing board and found in compliance with the
State Comprehensive Plan, then become part of the guiding Goals, Objectives and
Policies of the local plan until such time as the next EAR is prepared.
Collier County's E.A.R.:
Collier County's first EAR was prepared during 1996. There had been previous State-
initiated amendment processes, but 1996 was the first such amendment to use the current
EAR format. The subsequent EAR-based amendments were adopted in October 1997.
Thus, this EAR reviews the performance of Collier County's Growth Management Plan
(GMP) from October 1997 to the present day.
E.A.R. Requirements:
As required by Section 163.3191 (2), F.S., the EAR must address the following aspects of
the GMP:
1. Local governments must identify the major issues, if applicable, with input from
state agencies, regional agencies, adjacent local governments, and the public in
WORKSHOP DRAFT
the EAR process. It is also the intent of this section to establish mImmum
requirements for information to ensure predictability, certainty, and integrity in
the growth management process. The report is intended to serve as a summary
audit of the actions that a local government has undertaken and identify changes
that it may need to make. The report should be based on the local government's
analysis of major issues to further the community's goals consistent with
statewide minimum standards. The report is not intended to require a
comprehensive rewrite of the elements within the local plan, unless a local
government chooses to do so (Section 163.3191 (1) (c), F.S.).
2. The report shall present an evaluation and assessment of the comprehensive plan
and shall contain appropriate statements to update the comprehensive plan,
including, but not limited to, words, maps, illustrations, or other media, related to
the following items:
a. Population growth and changes in land area, including annexation, since
the adoption of the original plan or the most recent update amendments.
b. The extent of vacant and developable land.
c. The financial feasibility of implementing the comprehensive plan and of
providing needed infrastructure to achieve and maintain adopted level-of-
service standards.
d. The capability of sustaining concurrency management systems through the
Capital Improvements Element (C.LE.), as well as the ability to address
infrastructure backlogs and meet the demands of growth on public services
and facilities.
e. The location of eXIstmg development in relation to the location of
development as anticipated in the original plan, or in the plan as amended
by the most recent evaluation and appraisal report update amendments
( 1997).
f. An identification of the major issues for the jurisdiction and, where
pertinent, the potential social, economic and environmental impacts.
g. Relevant changes to the state comprehensive plan, the requirements of this
part, the minimum criteria contained in chapter 9J-5, Florida
Administrative Code, and the appropriate strategic regional policy plan
(the "Southwest Florida Strategic Regional Policy Plan") since the
adoption of the original plan or the most recent evaluation and appraisal
report update amendments.
h. An assessment of whether the plan objectives within each element, as they
relate to major issues, have been achieved. The report shall include, as
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appropriate, an identification as to whether unforeseen or unanticipated
changes in circumstances have resulted in problems or opportunities with
respect to major issues identified in each element and the social,
economic, and environmental impacts of the issue.
1. A brief assessment of successes and shortcomings related to each element
of the plan.
J. The identification of any actions or corrective measures, including
whether plan amendments are anticipated to address the major issues
identified and analyzed in the report. Such identification shall include, as
appropriate, new population projections, new revised planning timeframes,
a revised future conditions map or map series, an updated capital
improvements element, and any new and revised goals, objectives, and
policies for major issues identified within each element. This paragraph
shall not require the submittal of the plan amendments with the evaluation
and appraisal report.
k. A summary of the public participation program and activities undertaken
by the local government in preparing the report.
1. The local government must demonstrate coordination of the
comprehensive plan with existing public schools and those identified in
the applicable educational facilities plan adopted pursuant to s. 10 13 .35,
F.S. The assessment shall address, where relevant, the success or failure of
the coordination of the future land use map and associated planned
residential development with public schools and their capacities, as well as
the joint decision making processes engaged in by the local government
and the school board in regard to establishing appropriate population
projections and the planning and siting of public school facilities. If the
issues are not relevant, the local government shall demonstrate that they
are not relevant.
m. The evaluation must consider the appropriate water management district's
(the South Florida Water Management District) regional water supply plan
approved pursuant to s. 373.0361, F.S. The potable water element must be
revised to include a work plan, covering at least a ] O-year planning period,
for building any water supply facilities that are identified in the element as
necessary to serve existing and new development and for which the local
government is responsible.
n. If any part of the jurisdiction of the local government is located within the
coastal high-hazard area, the EAR must evaluate whether any past
reduction in land use density impairs the property rights of current
residents when redevelopment occurs, including, but not limited to,
redevelopment following a natural disaster. The property rights of current
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residents shall be balanced with public safety considerations. The local
government must identify strategies to address redevelopment feasibility
and the property rights of affected residents. These strategies may include
the authorization of redevelopment up to the actual built density in
existence on the property prior to the natural disaster or redevelopment
(Section 163.3191 (2) (a) - (m), F.S.).
Or2anization of the EAR:
The proposed 2004 EAR is organized into a single bound report containing three
(3) major chapters. These chapters are:
Chapter 1 - Countywide Assessment
Chapter 2 - Evaluation of Major Issues
Chapter 3 - Special Topics
Chapter 1 contains seven (7) sections. These provide required background
information and assess the condition of the various Elements and Subelements of
the Plan. Chapter 2 evaluates the thirty-seven (37) major issues, as agreed upon
between Collier County and the Florida Department of Community Affairs
(DCA). Chapter 3 examines three (3) special topics, also as agreed upon between
the County and the DCA.
Finally, this Introduction and Executive Summary provides a listing of all
proposed amendment recommendations, regardless of whether these
recommendations were developed through assessment of a particular element, or
through evaluation of a major issue or special topic.
Schedule:
Completed Tasks:
The preparation of the EAR has been a long and arduous set of tasks. During
2002, County staff attended two workshops (at the offices of the Southwest
Florida Regional Planning Council, in North Fort Myers, and at Charlotte County
Government offices in Port Charlotte, to meet with DCA representatives and
representatives from other state and regional agencies to discuss the EAR process,
learn of issues considered important by the DCA staff, and to learn how
neighboring local governments intended to respond to issues identified by the
State. On March 21, 2003 Comprehensive Planning staff conducted an internal
meeting to identify individual staff assignments with regard to the EAR. On April
29, 2003, Comprehensive Planning staff conducted a public workshop for the
Collier County Board of County Commissioners (BCC), for the purpose of
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identifying the final list of issues of importance (from the County's standpoint) to
be evaluated within the EAR.
On June 2, 2003, staff presented the finalized list of issues at a scoping meeting
with County and Regional officials. A representative of the DCA was present at
this meeting to provide an overview of the EAR process. On June 20, 2003 the
County's Draft Letter of Understanding was submitted to the Florida Department
of Community Affairs. The County and DCA agreed to the Final Letter of
Understanding on July 28, 2003. Since that time, Comprehensive Planning staff
has been coordinating preparation of the EAR with other County agencies and has
been gathering and analyzing data to be used in the report. From November 2003
through January 2004, staff has been actually finalizing draft sections of the
Report.
Future Schedule:
The following dates are tentative, based upon actions to be taken by the Collier
County Planning Commission (CCPC) and the BCC:
On April 20, 2004, Comprehensive Planning staff will present the first draft of the
EAR at a joint Collier County Planning Commission (CCPC)/Board of County
Commissioners (BCC) Workshop. The post-workshop draft of the EAR will be
distributed to DCA and the State and Regional review agencies on May 14, 2004.
The CCPC will hold its adoption public hearing for the EAR on July 15, 2004.
The BCC adoption hearing will be held on July 27, 2004. After the BCC adopts
the EAR, the adopted version of the Report will be submitted to DCA and the
review agencies. The DCA will then review the adopted EAR for sufficiency
with the State requirements. The projected date (very tentative) for the DCA
Sufficiency Determination is September 30, 2004.
II. Summary of Malor Issues & Special Topics:
The EAR includes sections that examine thirty-five (35) major issues and three (3)
special topics, as per the Letter of Understanding between Collier County and the DCA
The following is a list of the Major Issues and Special Topics, as well as a summary of
the staff recommendations thereto.
Malor Issues & County Staff Responses:
Section 2.1: Concurrency Management - Revenue Streams
Major Issue: The EAR will include an analysis of the County's direct cost accounting
practices, impact fees and fees for various permits and services to ascertain the extent to
which these programs have been successful in achieving the growth management
planning objectives of the comprehensive plan.
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Staff Response: Collier County's Impact Fee Program is designed to pay for
County facilities and services required by approved development. However, the BCC
must approve the impact fees and the methodologies used in assessing such fees. In
recent years, the impact fees assessed against new developments were insufficient to pay
for the cost of providing facilities and services to such development. Thus, the balance of
the cost had to be made up from other funding sources. The BCC has traditionally
rejected increases to ad valorem taxation to pay for funding shortfalls. Therefore, during
2002 and 2003, the BCC dramatically increased impact fee amounts.
Fees charged for permits do not directly reflect Growth Management Objectives. Rather
these fees are designed to pay for staff time and County resources spent processing
permit applications. Permitting fees are not set higher or lower based upon a particular
geographic area.
Section 2.2: Concurrency Management - Transportation Improvements
Major Issue: The EAR will evaluate whether its Five-Year Schedule of Capital
Improvements has adequately addressed the transportation needs of public schools and
parks/recreation facilities.
Staff Response: Development that is proposed in an area where road segments do
not have sufficient capacity to meet additional traffic impacts must have road
improvements underway or budgeted for construction within the second full year of the
Transportation Five- Year Work Program, following adoption of the County's Annual
Update Inventory Report. This gives the developer the benefit of being able to count
budgeted transportation capital improvements as "deposits" in the capacity column of the
concurrency ledger before those projects are actually completed.
The Transportation Services Division is actively involved in concurrency management,
impact fee analyses and the coordination and review of developer commitment
agreements, credits and refunds of transportation impact fees. The Transportation
Planning Department also plays an active role in the development and maintenance of
capital improvement programs.
Section 2.3: Concurrency Management
Transportation Concurrency
Development
Vested
from
Major Issue: The EAR will evaluate the effect on the County's ability to achieve and
maintain adopted level of service standards of vesting from transportation concurrency
approved for PUDs and DRIs.
Staff Response: Prior to 2003, County staff reviewed all PUD and DRI applications
for compliance with transportation concurrency provisions. As part of this review
process, proposed projects were assessed for their transportation impacts, and mitigation
requirements were assigned to projects on a case-by-case basis. This system was
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adequate for evaluating individual projects, but did not adequately assess the combined
impact of all development on the County's roadway system.
During 2003, the Board of County Commissioners adopted a "checkbook concurrency
system." This system examines the total trip capacity available for new development and
includes provisions relative to vested traffic. As part of the process of establishing the
checkbook concurrency system, County Transportation Planning staff conducted an
analysis of the "vested traffic" generated by the existing 327 PUD's in Collier County, as
well as platted subdivisions, such as Golden Gate Estates, including Golden Gate City.
The logic was that the transportation impacts of these developments were already
approved or "vested;" and, therefore, the transportation impacts of these projects had
been accounted for within the County's Capital Improvement Planning process.
The analysis of committed or vested traffic was undertaken to evaluate the impacts of
development traffic on the roadway system in order to determine the impacts of a
"checkbook" concurrency system; to determine what planned improvements would be
needed to mitigate the transportation impacts of these projects; and to establish a baseline
for the first year of the Concurrency Management System. These projects are ones that,
from a planning analysis perspective, are vested for transportation concurrency (i.e. meet
statutory requirements, have built required infrastructure, have paid transportation impact
fees through a Developers Contribution Agreement, etc.) and would not necessarily be
analyzed when a checkbook concurrency system was operational. This approach will
provide an adequate means for tracking the road impacts of existing, vested, and
proposed development.
Section 2.4: Concurrency Management . Financial Feasibility of Transportation
Improvement Projects
Major Issue: The EAR will analyze the County's ability to maintain a financially
feasible 5- Year Work Program for Transportation Improvement Projects.
Staff Response: The Capital Improvement Element (CIE) of the Collier County
Growth Management Plan contains the County's adopted five-year Schedule of Capital
Improvements, including transportation improvements. This schedule is updated and
amended annually to ensure compliance with the F.A.e. requirement above. On
occasion, the need for emergency expenditures requires the Board of County
Commissioners to reallocate funding from other budgetary areas to meet the requirements
of the Capital Improvement Program. In such instances, the Capital Improvement
Schedule is adjusted through an advertised public hearing process to make certain that the
County has adequate funding to meet its capital improvement needs.
Through a system of monitoring and systematic review, the County, through the Growth
Management Plan, is able to sustain a realistic 5-year work program for various
transportation improvement projects.
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Section 2.5: Concurrency Management - Level of Service Standards for Regional
and Community Parks
Major Issue: The EAR will evaluate whether the County has been able to maintain the
adopted level of service standards for Regional and Community Parks.
Staff Response: Division 3.15 of the Collier County Land Development Code
(LDC) establishes a management and monitoring program for public facilities, such as
community and regional parks, which provides for an annual determination of
concurrency and additional public facilities. Section 3.15.6 of the Land Development
Code requires the preparation of an Annual Update and Inventory Report (AUIR) on
public facilities for presentation to the BCC. The findings of the AUIR form the basis for
the preparation of the Annual Update and Amendment of the CIE, any proposed projects
to be included in the County's Annual Budget, the determination of any Area of
Significant Influence (ASI) and the review of the issuance of development orders.
The preparation and presentation of the past seven (1996-2003) AUIRs to the BCC met
the requirements of Division 3.15 of the LDC for an annual determination of the status of
public facilities. Concurrency requirements set f0l1h in the GMP have been met in each
AUIR.
Section 2.6: Concurrency Management - Capital Expenditures for Recreation
Facilities
Major Issue: The EAR will evaluate whether the Capital Improvement Element
requirement that the County annually devote $240.00 per capita to development of
recreation facilities has been sufficient to maintain adopted level of service standards.
Staff Response: Division 3.15 of the LDC establishes a management and
monitoring program for public facilities, such as community and regional parks, which
provides for an annual determination of concurrency and additional public facilities.
Section 3.15.6 of the Land Development Code requires the preparation of an Annual
Update and Inventory Report (AUIR) on public facilities for presentation to the BCC.
The findings of the AUIR form the basis for the preparation of the Annual Update and
Amendment of the CIE, any proposed projects to be included in the County's Annual
Budget, the determination of any Area of Significant Influence (AS I) and the review of
the issuance of development orders.
Every CIE project set forth in the past 7 AU IRs have been financially feasible and funded
by the BCC, as mandated by Florida statutes. Project expenditures in excess of estimated
impact fees, gas tax, and user fee revenues are reflected as being augmented by the
General Fund Revenues, which is defined as existing sales tax revenues, other shared
state revenues or various ad valorem levies at the discretion of the BCC.
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Section 2.7: Concurrency Management: Construction Cost Index (CCI) - Level of
Service for Parks Capital Facilities
Major Issue: The EAR will evaluate whether the current construction cost index in the
Recreation and Open Space Element, Policy 1.l.C, has been sufficient to maintain
adopted level of service standards.
Staff Response:
Policy 1.1, part c., reads as follows:
"Recreation facilities. Facilities in place which have a value (as (X) defined) of at least
$179.00 per capita of population. A Construction Cost Index (CCI) adjustment will be
used to determine the construction cost of facilities planned. The CCI that will be used
will be the prior year of the County's fiscal year budget.
1. Value will be arrived at using the per unit values for each facility type available in
the County as set forth in Table A applying the values to the number of each
facility type, adding up all values and dividing the total by the County population.
2. Where recreation facilities provided by other governmental bodies or the private
sector are available through arrangement with the County to the public on a
convenient basis, they shall be considered in measuring in place facility value."
Every CIE project set forth in the past 7 AUIRs have been financially feasible and funded
by the BCC, as mandated by Florida statutes. Project expenditures in excess of estimated
impact fees, gas tax, and user fee revenues are reflected as being augmented by the
General Fund Revenues, which is defined as existing sales tax revenues, other shared
state revenues or various ad valorem levies at the discretion of the BCC.
Section 2.8: Concurrency Management: Public Beach and Waterway Access
Major Issue: The EAR will evaluate whether the current level of public beach facilities
and waterway access locations is consistent with community planning objectives.
Staff Response: The Collier County Growth Management Plan outlines level of
service standards (LOSS) for parkland in three categories: facilities value, community
park acreage, and regional park acreage. Beach, beach parking, and boating access
acreage are currently included the regional park acreage measure for purposes of
comprehensive plan concurrency. The 2001 Annual Update and Inventory Report
projects satisfaction of regional park acreage LOSS through 2009 based on acreage
acquisitions planned in CIP through 2004.
Currently.27 boat ramp lanes serve boaters countywide. The Parks and Recreation
Department maintains eleven of these lanes; City or State government provides seven;
and nine are privately owned but open to the public. Twenty-one thousand vessels were
registered in Collier County in 2002. Less than 6000 wet slips and less than 3000
commercial dry storage spaces are available to hOllse them. As a result, at least 12,000
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vessels countywide are dependent on boat ramps for water access. At an average of 20
launches per vessel per year, countywide facilities should be able to accommodate
240,000 launches per year to meet demand, Spread across the 27 boat ramp lanes
available, facilities will average 8,889 launches per year, or 24 launches per day. This
figure accords with the recommendation of the Florida Statewide Comprehensive
Outdoor Recreation Planning Guide of 2000, which suggests that a single boat ramp lane
can accommodate 36 launches per day (20 minutes total put-in and pull-out time over a
l2-hour period). These calculations are ideal numbers, however, and do not provide for
peak use times such as weekends and holidays or for any boats trailered in from outside
of the county.
The Florida Statewide Comprehensive Outdoor Recreation Planning Guide recommends
that average peak use be calculated as follows: Total user occasions are multiplied by 55
percent and divided by Ill. This formula is derived from state park attendance, where 55
percent of the total annual attendance occurred over 111 days (52 weeks times two
weekend days plus seven weekday holidays). Average weekend and holiday use for
Collier County's boat ramp-dependent vessels then is 1189 launches, or 44 launches per
lane per day. To meet the recommended carrying capacity of 36 launches per lane per day
on an average weekend or holiday Collier County needs an additional six boat ramp lanes
countywide.
The growth of boating countywide is a further consideration with regard to the level of
service County boaters can expect to experience. The number of registered vessels in the
county has grown steadily at 1000 boats per year over the past six years. Currently few
solutions exist for finding homes for these additional boats in dry storage or slips. They
will most likely become ramp users, too. At 20 launches per year they will require an
additional 55 launches each day or 99 launches on an average weekend day. This
translates to a need for an additional two boat ramp lanes per year for as long as this
growth rate is sustained in order to maintain the levels of service County boaters
currently enjoy.
An additional consideration with respect to boating is access to fresh water. Currently
only Lake Trafford is officially available for freshwater boating, although a considerable
amount of boat traffic finds its way to the canal system. More access to fresh water may
alleviate some of the burden on existing facilities and, as the County population grows,
may become an increasing demand in its own right.
The State of Florida recommends a distance of one half (0.5) mile between sites for the
spacing of beach access points at state-financed beach restoration projects. Collier
County beaches offer a wide range of choices with regard to the frequency of access
points along its beaches. In general, State and County beach parks have more sparsely
spaced access points to maintain lesser density and a more natural beach environment and
experience. The City of Naples, on the other hand, maintains 34 of its 37 access points
within a five-mile stretch of beach, allowing for a more urban beach experience. County
residents and visitors are well served by this variety, but to keep up with growth the
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County should continuously seek ways to lmprove access, amenity, and parking at its
beaches.
Even more than for boaters, a beachgoer's enjoyment is only as attainable as the nearest
available parking space. In the last three years Collier County has added 93 beach
parking spaces to its inventory: 80 at Conner Park (which allow for access to Delnor-
Wiggins State Recreation Area or Vanderbilt Beach) and 13 at North Gulf Shore Accesso
Total spaces at County beaches with the completion of the North Gulf Shore project will
be 1,179. Spaces at City of Naples and State of Florida beaches have remained static at
1,122 and 350, respectively.
A final topic in assessing the County's levels of service with regard to beaches and
boating is the introduction of alternative recreational activities. Sugden Regional Park is
home to the 60-acre Lake Avalon, which supports a swimming beach and opportunities to
participate in non-motorized boating such as sailing, canoeing, kayaking, and paddle
boating. Clam Pass Park and Barefoot Beach Preserve offer canoe launches. Future plans
also call for a non-motorized vessel launch at the bridge at State Road 92. Upon
completion of North Naples Regional Park, residents and visitors can enjoy a first-class
water park with slides, a lazy river, and children's activity pools-a perfect alternative to
the beach for cooling down on a hot day. The existing Golden Gate Aquatic Center and
small water park at Vineyards Community Park provide more choices, as well. The
County should continue to diversify the recreational activities it offers. Variety builds the
participant base and alleviates the burden on traditional resources such as beaches.
The County finds that there are no enabling policies for Recreation & Open Space
Objective 1.3 that specifically deal with issues related to beach access points or waterway
access. Staff has proposed amendments to the Recreation & Open Space Element to help
address these shortfalls.
Section 2.9: Affordable Housing - Current Demand
Major Issue: The EAR will characterize the current supply of affordable housing
utilizing data from the Shimberg Center for Affordable Housing.
Staff Response:
Objective 1 of the County's Housing Element reads as follows:
'The number of new affordable housing units shall increase by 500 units each year in an
effort to continue to meet the housing needs of all current and future very-low, low and
moderate income residents of the County, including those households with special needs
such as rural and farm worker housing in rural Collier County."
Collier County continues to surpass its stated Objective 1 in its Housing Element by
producing 500 new affordable housing units each year. Recent years, in fact, show
production levels regularly exceeding 1,500 units per year, with approximately 2,500
produced in FY03.
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The University of Florida's Shimberg Center for Affordable Housing estimates that in the
year 2000, there were 21,456 cost-burdened households (those paying more than 30% of
their gross monthly income for housing expenses) living in Collier County. The
Shimberg Center further reports that 7,561 new dwelling units were constructed in the
year 2001. However, it should be noted that the mean sales price for housing units in
Collier County for a single-family home is $337,613. Collier Count's exceptionally
active construction industry continues to produce a large number of units, however these
units tend to be out of the affordability range of many of our low-income buyers.
Section 2.10: Affordable Housing - Non-Profit Housing Development Corporation
Major Issue: The EAR will evaluate the success of the non-profit housing development
corporation in achieving the affordable housing objectives of the comprehensive plan.
Staff Response: The Workforce Housing Advisory Committee included the
creation of a non-profit Housing Development Corporation (HDC) as one of its final
recommendations to the Board of County Commissioners in April of 2003. The BCC
approved the recommendation unanimously and subsequently approved $98,000 to assist
in the organization, start-up and funding for the Community Housing Development
Organization (CHDO) for its inaugural year.
The Steering Committee for the Collier County Housing Development Corporation is in
the process of naming a nine-member Board of Directors. Once created, the board will
create an Advisory Board to assist in the creation of an overall vision for the CHDO.
The HDC will operate as a private nonprofit organization with a 501 (c) federal tax
exemption. According to the U.S. Department of Housing and Urban Development, a
celiified CHDO is a community-based service organization whose primary purpose is to
provide and develop decent, affordable housing to low-income households. Furthermore,
it must serve a specific, delineated geographic area, either a neighborhood, several
neighborhoods, or the entire community but not the entire state.
The Collier County HDC will utilize federal HOME set asides and technical assistance to
assist the County in achieving its mission of creating affordable housing for all residents
of Collier County.
Before the creation of the countywide housing development corporation, the
Empowerment Alliance of South West Florida operated as an HDC, but was restricted to
the geographic area of Immokalee. They have been in existence for several years and are
in the midst of constructing a 26-unit affordable single-family housing subdivision in
Immokalee.
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Section 2.11: Affordable Housing - Density Bonus Provisions
Major Issue: The EAR will evaluate whether its (the County's) density bonus
provisions have been effective in promoting the construction of affordable housing and
workforce housing.
Staff Response: The Density Bonus program has been successful in producing
affordable multi-family rental units. Approximately 500 units per year have been built
utilizing this incentive. The program has experienced a recent decline in the past year for
at least two reasons. First, the Florida Housing Finance Corporation has classified
Collier County as a "Category A" county when competing for low-income housing tax
credits. This makes it extremely difficult for prospective affordable housing developers
to compete for statewide credits; second, political pressures have influenced private
developers away from producing low-income rental units in favor instead of owner-
occupied units. However, the existing Density Bonus Program is geared toward
producing housing at 60% of median level (in line with the State Housing Tax Credit
Program). The cost of land, infrastructure, construction and impact fees in Collier
County make it very difficult, if not impossible, for the private sector to produce owner-
occupied units serving this income group. When the density bonus formula is used to
produce units at the 80% income level, the resulting bonus is still not enough to make
producing owner-occupied units attractive to the private sector.
The County recommends, in accordance with the Workforce Housing Advisory
Committee, making changes to the Comprehensive Plan might include automatic density
programs, or programs designed to increase the effectiveness of the density bonus.
Section 2.12: Affordable Housing - Loan Tracking
Major Issue: The EAR will evaluate whether Housing Element Policy 3.3, regarding a
5% annual increase in the leveraged monies awarded to the County for its housing
programs, has been successful in promoting the construction of affordable housing.
Staff Response: Collier County has tracked the amount of leveraged monies
utilized yearly on units produced through the SHIP Program. If the County maintained a
5% increase per year, the overall escalation since 1997 would be only 34 percent.
However, as illustrated by the chart found on page 2.12.1 of this report, the overall
change in leveraging for the seven-year period is 123 percent. This Policy is clearly
being met.
In addition, for the seventh consecutive year, the Collier County University Extension
Service, in partnership with the Collier County Loan Consortium, has been assisting low-
and moderate-income families in Collier County realize the dream of home ownership
with homeowner education and mortgage finance assistance. For fiscal year 2002-03, 37
low- to moderate-income families throughout Collier County became new homeowners.
The participating financial institutions contributed a total of $4,744,860 with the average
loan being $128,239.00.
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Section 2.13: Affordable Housing - Undeveloped Lots
Major Issue: The EAR will evaluate whether the comprehensive plan's prohibition on
locating affordable housing on legally non-conforming lots of record has prevented
attainment of affordable housing production objectives.
Staff Response: The Collier County Growth Management Plan does not prohibit
residential construction (affordable or otherwise) on "legally non-conforming lots of
record." In fact, the opposite is true. These lots are, by definition, legal. Therefore, lot
owners may construct homes on said lots.
Presently, the county intends to evaluate the possibility of limiting legally non-
conforming lots exclusively to affordable housing. As previously mentioned, affordable
housing production objectives have been met, but the objectives are stated lower than the
actual need. There are, however, a large number of Estates-zoned lots (between 1 and
1.14 acres) recorded as non-conforming. Many of these lots are located in one of the last
affordable areas of the County (Golden Gate Estates) and are in, or very near, the urban
services boundary. Authorizing these lots for affordable housing only would create a
substantial number of affordable housing opportunities in close proximity to employment
centers and municipal services.
Section 2.14: Affordable Housing - InfilI Development
Major Issue: The EAR will evaluate whether the comprehensive plan's requirement that
infill parcels must be a minimum of 5 acres in size has permitted attainment of affordable
or workforce housing and infill development objectives.
Staff Response: This issue may derive from a misunderstanding of criteria
contained in the County's Growth Management Plan. The plan contains no provisions
requiring a minimum 5-acre parcel for this use. In fact, Collier County amended the Plan
in June 2002. The Residential Infill Density Bonus in the Density Rating System is now
applicable to properties of 20 acres or less in size (previously 10 acres or less).
Section 2.15: Affordable Housing - Comprehensive Housing Inventory
Major Issue: The EAR will evaluate to the extent to which Housing Element Objective
4, requiring the County to survey its existing housing inventory, has been achieved.
Staff Response: The Housing Stock Inventory Survey Committee has recently been
created and the survey instrument has been finalized. Housing stock inventory will begin
during the 4th quarter of 2003 in the Immokalee area to assess existing conditions. In
addition, the Collier County Code Enforcement Department currently conducts over
24,000 site inspections per year, of which approximately 20,700 are on improved
residential properties. The Code Enforcement voluntary compliance rate for violations is
excellent. This translates into 20,000 potential housing violations corrected per year.
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Section 2.16: Affordable Housing - Demolition of Unsafe Housing
Major Issue: The EAR will evaluate the extent to which County implementation
activities have been successful in demolishing unsafe housing, consistent with the
requirements of Housing Element Policy 4.2.
Staff Response: After the completion of Housing Stock Inventory Survey to
identify the unsafe/substandard housing units that need to be demolished, the funding
sources will be identified and demolition implementation will begin in FY 05. In
addition, all residential structures are subject to health and building codes.
Section 2.17: Affordable Housing - Historically Significant Homes
Major Issue: The EAR will evaluate the extent to which historically significant homes
have been rehabilitated and/or preserved.
Staff Response: A list of the known historic homes and structures within
unincorporated Collier County was prepared using the Florida Master Site Files for
Collier County. The list does not contain any historic homes or structures that may exist
in the County's three incorporated municipalities. This list can be found in Appendix
2.17.A of this report.
Non-residential structures were added to the above EAR task for the following reasons:
1. In some instances, these structures, although originally intended for some other
use, have been used as residential units, or vice-versa.
2. The Master Site Files are broken out by geographic section of the County, not by
residential versus non-residential.
3. The staff analyses and recommendations are applicable to both residential and
non-residential structures.
Most of the information contained within the Florida Master Site Files (and the staff-
generated list) is derived from an historical survey that was conducted in Collier County
during 1986 and 1987. In some instances, later information has been hand-written onto
various pages by staff, over time. In other instances, Comprehensive Planning staff
(staff) was able to supplement Site Files information with information contained on
community websites, or as provided by the County's Historical & Archaeological Review
Board. The Collier County Museum's restoration efforts at Roberts Ranch were also
valuable as a source of information. Unfortunately, for most of the listed homes and
structures, the most recent data is still from 1986 or 1987. Furthermore, in many
instances, the data provided by the 1986-1987 Survey, as recorded in the Master Site
Files, was incomplete. Most of the pages reviewed by staff included were not completely
filled out, or others had portions of descriptive paragraphs missing, or others contained
obvious typographical errors. The Planning Services Department's Master Site File
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copies are maintained in a binder. Overtime, it appears that the files have not been
properly maintained (e.g., pages appear to be missing). Most importantly, there has been
no concerted attempt by County staff, or others, to update the results of the earlier survey.
Although the Growth Management Plan appears to require periodic historical surveys
(e.g., Policy 3.1 of the FLUE), none have been conducted in the County since 1987. The
Housing Element, Policy 5.7, requires that a Historical Housing Construction Survey be
prepared and updated every five years. There is no designated and funded County
agency placed in charge of recording and maintaining lists of historic homes in Collier
County.
The County has had limited success in preserving historic sites or structures through the
development review process. In fact, this is how the County acquired the Roberts Ranch
property. Unfortunately, the applicability of this process is limited, because County
requirements can only be enforced when the historic property in question is directly
involved with some type of zoning or permitting process.
The EAR-based amendments should include a recommendation that a new Historical
Survey be commissioned for Collier County, and that surveys be performed at some
regular interval, thereafter. Also as part of the EAR-based amendment process, the
County should evaluate the proper County agency to conduct, maintain and update the
Historical Survey. Members of the County's Historical & Archaeological Review Board
should be asked to provide input to this issue.
Section 2.18: Affordable Housing - Affordable Housing By Right
Major Issue: The EAR will evaluate whether the County's failure to allow affordable
housing by right at sufficient densities in all land use categories within the urban
boundary has hampered the attainment of affordable housing production objectives.
Staff Response: The County's Density Bonus Ordinance was recently reviewed by
the Workforce Housing Advisory Committee and several changes to it were suggested.
Changes proffered by the Committee included creating a "density by right" system for
affordable housing developments, altering the percentage required to be affordable in the
current formula, and developing separate density calculation formulas for rental and
owner-occupied housing developments.
The Community Character/Smart Growth Committee are also discussing changes to the
Growth Management Plan and Land Development Code that include the provision of
residential over commercial by right. These changes could positively affect the
production efforts and opportunities for affordable housing within the urban boundary
and throughout the entire county. The County will continue to work with the various
committees in an attempt to facilitate and promulgate affordable housing in this regard.
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Section 2.18.1:
Immokalee
Affordable Housing - Affordable Housing By Right -
Major Issue: The EAR will evaluate housing constmction implementation activities and
programs in the Immokalee urban area to determine whether housing production
objectives in the plan have been achieved.
Staff Response: The combination of SHIP, CDBG and other state funding (Urban
Infill Grant & State HOME) has assisted in the creation of affordable owner-occupied
housing units and affordable rental units. These funds have targeted Immokalee in an
effort to promote and promulgate affordable housing. Thirty-five percent of Collier
County's SHIP Funds over the past 2.25 years have gone to Immokalee. Furthermore,
64% of all SHIP activity has been concentrated in Immokalee - 1 st quarter 2003. The
percentage increase over time helps illustrate the county's dedication to the revitalization
of the Immokalee community. The Immokalee region continues to be among the leading
areas of the County concerning the availability of affordable housing for residents
earning 80% or less of the area median income.
Section 2.19: Environmental Resource and Habitat Protection
Restoration
Habitat
Major Issue: The EAR will evaluate the extent to which countywide standards for
habitat reclamation/restoration developed by the County Environmental Services staff has
been successful in ensuring habitat protection.
Staff Response: Collier County has adopted various criteria to protect habitats from
destruction by development. These criteria address both the retention of native
vegetation and the preservation of wildlife habitat. The original 1989 Growth
Management Plan provided for 25% retention of "viable naturally functioning native
vegetation."
The GMP is implemented during the County's land petition and site development review
process. Applicants must submit a vegetation inventory, including the amount of
vegetation to be preserved on site. Staff reviews these applications for consistency with
the requirements of the GMP and the Land Development Code to ensure the proper
amount of vegetation is retained on site,
For the 1996 EAR, staff analyzed the amount of vegetative communities retained by
permitted developments. This analysis has been repeated for the current EAR. The
analysis indicates that application of the retention standards have set aside total
vegetative communities at values that exceed the "nominal" value of 25% as adopted in
the 1989 Growth Management Plan.
These results do not reflect the new amendments that were adopted in 2002 in response to
the Governor and Cabinet's Final Order addressing the Rural Agricultural Area
Assessment. It is expected that these new policies will provide for at least the same
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amount of overall retention. The new policies also provide for a priority list of habitats
that must be retained as part of the vegetation retention requirement. Overall, the
majority of the enabling policies continue to be relevant for all of the objectives reviewed
in Section 2.19 of this report, and these policies will therefore be retained in the updated
comprehensive plan. It will require some time to evaluate the impact of the recently
adopted vegetation retention policies. Therefore, the EAR-based amendments should not
include specific changes relative to this issue.
Section 2.20: Environmental Resource and Habitat Protection - Environmental
Management Programs
Major Issue: The County will assess whether its environmental management programs
have been successful in protecting environmental resources and habitat areas.
Staff Response: In June 2002, the GMP was amended in response to the Governor
and Cabinet's Final Order addressing the Rural Agricultural Area Assessment. These
amendments adopted more specific preservation and retention requirements for the Rural
Fringe and Eastern Lands areas and for other areas of the County as well. These
amendments created various mechanisms for environmental protection. A listing of these
mechanisms is as follows:
· Adoption of Vegetation Retention, Wetland Preservation and Listed Species
standards applied at the project review level,
· Adoption of NRP As and Sending Lands land use restrictions in the Rural Fringe
· Adoption of Flowway and Habitat Stewardship Areas in the Eastern Lands
In November 2002, the County voters passed a referendum authorizing an environmental
lands acquisition program. The program, Conservation Collier, is authorized to bond up
to $75,000,000 to purchase environmentally sensitive properties. The Target Protection
Areas include properties in the Urban Lands and North Golden Gate Estates having
predominantly native vegetative cover, NRPAs, Sending Lands, Flow-way Stewardship
Areas, and Habitat Stewardship Areas that are shown on the Future Land use Map. As of
November 2003, approximately 500 acres were under review by the Conservation Collier
Land Acquisition Advisory Committee.
The County is currently in the process of adopting the Land Development Regulations to
implement these protection mechanisms and, therefore, has not had sufficient time to
fully implement the Final Order directed amendments. The Conservation Collier land
acquisition program is also in its beginning stages.
Although the Final Order amendments have yet to be implemented, the County has been
able to retain 31 % of habitats through the development review process. It will take some
additional time before the County can evaluate the impacts of the recently adopted
amendments. Therefore, the EAR-based amendments should not include specific
changes relative to this issue.
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Section 2.21: Environmental Resource and Habitat Protection - Coastal Barrier
and Estuarine Resources
Major Issue: The EAR will review the successes and failures of current County
programs in protecting coastal barriers and estuarine resources.
Staff Response: The 1989 Growth Management Plan adopted a number of
Objectives that addressed the protection and conservation of the County's coastal and
estuarine resources. These objectives and their attendant policies specifically identified
the maintenance of water quality standards within the estuaries and canals discharging to
the estuaries, the appropriate protection of coastal barrier and estuarine habitats, the
protection of certain listed species within this area, and the creation of artificial reefs.
The GMP is implemented during the County's land petition and site development review
process. Applicants must submit their development plans including vegetation
inventories, the amount of vegetation to be preserved on site, stormwater management
plans and listed species management plans, if applicable. Staff reviews these applications
for consistency with the requirements of the GMP and the Land Development Code. The
County's Pollution Control Department also conducts a water quality program by
collecting and testing surface and ground water samples.
Assessment of the available data (see Section 2.21 of this report) indicates that coastal
and estuarine habitats have been preserved at levels greater than 99% of the original
habitat. Although no data are available for assessing impacts to submerged habitats, the
County does implement various sections of the Land Development Code that provide
protection for sea grasses around boat docks. Boat-related manatee deaths are within the
3.2 boat deaths per 1O,000-boat benchmark identified in Conservation and Coastal
Management Element (CCME) Objective 7.2. Sea Turtle disorientations are also within
the 5% benchmark identified in CCME Objective 7.3. The County has continued to place
materials in the Gulf within its artificial reef sites.
The Everglades West Coast Basin Status Report, which was done in November 2001 by
the Florida Department of Environmental Protection, has identified 9 water bodies within
Collier County that have potential impairment of water uses. Although the majority of
WQI scores are in the "Good" range, it is recommended that the County further evaluate
the extent of these potential problems and identify a strategy to address non-point sources
of pollution.
Section 2.22: Hurricane Evacuation - Limiting Development in the Coastal High
Hazard Area
Major Issue: The EAR will evaluate the degree to which planning objectives related to
limiting development in coastal high-hazard areas have been achieved.
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Staff Response: Collier County has not experienced a catastrophic countywide
disaster since Hurricane Donna in 1960. Despite the County's good fortune and the
relatively short collective, memory of its residents, the County has not been lulled into
complacency. Over the years, Collier County's Board of County Commissioners have
instituted policies, that have resulted in limiting development within the Coastal High
Hazard Area (CHHA). These strategies have included denying all taxpayer subsidized,
unimproved capital improvement projects within the CHHA; denying any transfer of
developments rights within the CHHA; and limiting any density increases through the
density rating system.
Over the past six years, there has been an overall land use density increase of 35% within
the Coastal High Hazard Area (CHHA). Furthermore, there was an overall average
increase of 67% in residential development occurring in the CHHA. Based upon this
empirical evidence, the preliminary conclusion is that the County's objectives have fallen
short on limiting development, especially single-family residential, within the CHHA.
However, the density rating system has played and will continue to playa pivotal role in
controlling development within the CHHA.
The majority of residential development that has occurred over the past seven years has
been within the Urban Coastal Fringe Subdistrict, which has a current density cap of only
4 dwelling units per acre. However, of the 39 Planned Urban Developments (PUDs)
within the CHHA, two of them, both of which are vested developments given
development approval prior to the County's first adopted GMP in 1989, make up 54% of
the total acreage; 64% of the single-family residential and 34% of the multi-family
residential development.
Based upon the analysis contained in Section 2.22, no changes are recommended to the
GMP with regard to limiting development in CHHA. In addition, existing objectives and
policies have been effective in addressing hurricane evacuation.
Section 2.23: Hurricane Evacuation - Limiting Public Expenditures that Subsidize
Development in the Coastal High Hazard Areas (CHHA)
Major Issue: The EAR will evaluate the degree to which planning objectives related to
limiting public expenditures that subsidize development in coastal high-hazard areas have
been achieved.
Staff Response: In an effort to dissuade development within the Coastal High
Hazard Area (CHHA), Collier County has made a concerted effort over the past seven
years so that the Capital Improvement Element and the Future Land Use Element work
together to the degree that public expenditures in the CHHA are limited to those public
facilities needed to support new development to the extent permitted, by right, in the
Future Land Use Element. In addition, public expenditures shall include the following
categories:
A. Maintenance of existing public facilities;
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B. Beach, shore and waterway access;
C. Beach renourishment
One of the notable discoveries was the type of residential development activity that has
occurred within the CHHA. Staff especially took note of the sharp contrast of the Marco
ShoreslFiddler's Creek Community Development District (COD) versus all of the other
PUDs, which are non-COOs.
To briefly state how a COD is defined under Section 190.005 (2), Florida Statutes, the
Community Development District (COD) is the best alternative available for delivering
community development services and facilities to the area that will be served internally
by the COD. The community development services and facilities of the COD will not be
incompatible with the capacity and uses of existing local and regional community
development services and facilities. The area that will be served by the district is
amenable to separate special district government.
The impact of Fiddler's Creek have been notable:
.:. 72% of single-family residential development over the past seven years has been
done by Marco ShoresIFiddler's Creek COD
.:. 52% of multi-family residential development over the past seven years has been
done by Marco ShoresIFiddler's Creek COD
.:. 75% of all residential development over the past seven years has been done by
Marco ShoresIFiddler's Creek COD
.:. The most noteworthy fact is the average gross density of all approved residential
development, that being PUDs, over the past seven years was 3.5 dwelling units
per acre. Matter of fact, this density is below the standard base density of all
urban designated lands of 4 dwelling units per acre.
The residential development pattern over the past seven years for all of the remaining
residential development has mostly been located in Planned Urban Developments, this
has transpired within the Urban-Agricultural/Rural Land Use Designations. As a result
of the success associated with the strict criteria and conditions in the FLUE, no changes
are recommended to existing objectives and policies in the GMP.
Section 2.24: Hurricane Evacuation - Maintenance of Clearance Times and
Adequate Shelter Space
Major Issue: The EAR will evaluate the degree to which planning objectives related to
hurricane evacuation, maintenance of clearance times, and maintenance of adequate
shelter space have been achieved.
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Staff Response: Collier County participated in the preparation of the Southwest
Florida Regional Hurricane Evacuation Study 2001 prepared by the Southwest Regional
Planning Council. This Study contained a section that assessed Collier County's
vulnerability to tropical storms and hurricanes using the Sea, Lake, and Overland Surges
from Hurricanes (SLOSH) model. The SLOSH model used thirty-three points in Collier
County for time history analysis. These points represent the potential greatest height of
storm water flooding for each category storm.
One of the primary assumptions of the model used in this study concerns the percentage
of vulnerable residents likely to evacuate. For example, prior to a recommended or
ordered hurricane evacuation it may be known that, based on traffic movements, 10% of
the vulnerable population has evacuated early. Based on behavioral science, 10%, in fact,
may not evacuate. Therefore, it can be assumed that 80% of the population will evacuate
can be used in the SLOSH model. The primary assumptions and multipliers, including
occupancy rates used in the model, can and should be changed if new data becomes
available to support different assumptions or multipliers to fit the specific hurricane
scenario threatening Collier County.
Comprehensive Planning staff has re-analyzed the impact of a major hurricane
evacuation on the County using 2000 Census population projections. This analysis
shows that evacuation times have actually decreased over the past seven years, in spite of
the marginal increase in population size and increased traffic, primarily due a number of
roadway projects. The analysis also shows that the County has provided adequate shelter
space for its vulnerable population up to a Category 1 hurricane. The County will
continue to enforce its existing land use regulations for land use intensities/densities
within the CHHA to curtail the current deficit of shelter space for a Category 2 or greater
hurricane and to either maintain or reduce clearance times in the future.
In order to continue to strive to make progress in maintaining or decreasing evacuation
clearance times and reducing the deficit of emergency shelter space, Collier County
should do the following:
.:. Create a "Special Populations at Risk" Overlay that will prohibit the construction
of nursing/convalescent centers and hospitals within the County's designated
CHHA that are not located within "close" proximity to designated hurricane
corridor/arterial roadways.
.:. Within the CHHA, the County should identify hurricane evacuation roadway
segments/constrictions points that are at a level service D or worse with the
implementation of building construction program to build hurricane evacuation
shelters.
.:. Adding Hurricane Evacuation Shelters as a new Category A of Public Facilities
list.
.:. The County should create an interlocal agreement for all adjacent, incorporated
governments that are within the CHHA, that being Everglades City, City of
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Marco Island, and the City of Naples, in regards to the approval process for large-
scale developments that will impose direct, negative impacts on the LOS of
roadways/hurricane evacuation corridors in Collier County.
Section 2.25: Hurricane Evacuation - The Coastal Construction Control Line
(CCCL) Program
Major Issue: The EAR will evaluate the success of the Coastal Construction Control
Line program in reducing the amount of property subject to damage by hurricanes or
coastal storms.
Staff Response:
Staff conducted a GIS analysis to evaluate the amount of development that has occurred
seaward of the Coastal Construction Setback Line (CCSL) and Coastal Construction
Control Line (CCCL) and U.S. 41 (U.S. 41 is the landward boundary of the Coastal High
Hazard Area for portions of the County). By comparing the 1995 and 2002 aerials, staff
was able to estimate the amount of development that has occurred seaward of these
boundaries during this timeframe. Only 45 additional structures were found to be located
seaward of the State's CCCL. Of those 45 structures, 9 structures were found seaward of
the CCSL in the 7 years evaluated between 1995 and 2002. This analysis also indicates
that amount of acreage built seaward of the CCSL is approximately 0.42 acres (less than
20,000 square feet).
The County recommends maintenance of the current Objectives. It is further
recommended that since the State revised its line in 1989, after the adoption of the
County's Plan, the existing policy references to the CCCL should be changed to reference
the County's CCSL.
Section 2.26: Wellhead Protection - Administrative Arrangements
Major Issue: The EAR will evaluate the County's wellhead protection programs and
management criteria to determine the degree to which related planning objectives have
been achieved.
Staff Response: Pursuant to Section 163.3402, F.S., Collier County has adopted the
Ground Water Protection Section (3.16) of the County's Land Development Code (LDC),
which is in conformity with the components of Collier County's adopted Growth
Management Plan. Section 3.16 establishes standards, regulations and procedures for the
review and approval of existing and proposed development within the mapped wellfield
protection zones in the unincorporated and incorporated areas of Collier County. Collier
County identifies and protects natural groundwater aquifer recharge areas from activities
that could degrade and/or contaminate the quality of groundwater.
Occasional exceedances in chromium and lead from random water samples taken over
the past seven years may be related to both non-point and point pollution sources
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throughout the County. However, there has been no observable "trend pattern" that would
warrant a "very intensive study" within the spatial proximity of the geographic area
consisting of the thirteen monitoring wells. Overall, the low number of exceedances
indicates that the CCME's Objectives 3.1, 3.3 and 3.4 has been partially achieved.
Statistically speaking, the County's thirteen groundwater-monitoring wells cannot
provide definitive conclusions as to the overall groundwater quality within Collier
County. The County will need to address this issue through more funding, manpower and
assistance from federal and state agencies, such as the Florida Department of
Environmental Protection. In the meantime, the County's Pollution Control and
Prevention Depmtment, the Big Cypress Basin Board and the South Florida Water
Management District have embarked upon an ambitious program to establish a baseline
set of groundwater quality data for Golden Gate Estates, an area of approximately 93
square miles. Analysis of this data, once it is established, will include a quantitative
determination of contaminants present in the County's water supply and a determination
as to how these substances may have entered the groundwater (e.g., from septic systems,
landscaping and agricultural activities, and mechanical work resulting in the release of
chlorinated solvents or petroleum products into the groundwater).
Objective 3.1 of the CCME requires the County to achieve compliance with State and
Federal water quality standards by January 2002 and to maintain such water quality
thereafter. Staff believes that this is not an obtainable objective. Due to local geological
conditions, aquifer systems may have contaminant concentrations that exceed State
standards (Primary/Secondary Drinking Water Standards) that were established for
Municipal Water Supply Utilities. To make this objective more attainable, staff
recommends that this objective be reworded to state:
"Collier County shall continue to take the necessary actions to maintain a high level of
ground water quality within its aquifer systems. Collier County will apply the Federal and
State water quality standards as a means of achieving this objective."
Section 2.27: Urban Development Pattern - Extent of Redevelopment within the
CRAs
Major Issue: The EAR will assess the extent of redevelopment within the designated
redevelopment areas.
Staff Response: On March 14, 2000, the BCC adopted Resolution 2000-82,
determining that two areas in unincorporated Collier County suffered from conditions of
blight, as defined in Section 163.340 (8) F.S. According to the Resolution, "the
rehabilitation, conservation or redevelopment, or a combination thereof, is necessary in
the interest of the public health, safety, morals or welfare of the residents of Collier
County, Florida." As a result of this finding, Resolution 2000-83 was adopted,
establishing the Collier County Community Redevelopment Agency (CRA), which, in
accordance with Section 163.357 F.S., declared the BCC to be the CRA Board. This
resolution also provided for the creation of two advisory boards for each of the newly
designated community redevelopment areas-the Bayshore/Gateway Triangle Area and
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the Immokalee Area-to be composed of citizens, residents, property owners and
business owners (or persons engaged in business) in these areas.
On May 23, 2000 the Collier County CRA met for the first time. As required by State
Statute, a redevelopment plan that provided a framework for the effective redevelopment
of the Community Redevelopment Areas was eventually prepared and presented to the
Collier County Planning Commission, the CRA Board, and the Board of County
Commissioners. The BCC adopted the Collier County Community Redevelopment Plan,
as set forth in Resolution 2000-181, on June 13,2000. The Plan outlined goals for each
community redevelopment area and recognized several funding sources for their
implementation, including the use of Tax Increment Financing (TIF).
Collier County recommends continued implementation of the Collier County Community
Redevelopment Plan, as set forth in Resolution No. 2000-181.
Section 2.28: Urban Development Pattern - Neighborhood Commercial
Major Issue: The EAR will assess whether the lack of neighborhood (small-scale)
commercial uses has prevented achievement of planning objectives related to mixed-use
development.
Staff Response: The Collier County Future Land Use Element (FLUE) contains no
specific provisions for neighborhood-scale commercial development. Where such
development occurs it either pre-dates adoption of the 1989 Growth Management Plan
(GMP) or is within a particular future land use designation, such as a District or
Subdistrict. In the latter instance, the neighborhood commercial development is usually
part of a Planned Unit Development (PUD).
Any of the FLUE's commercial future land use designations would allow neighborhood-
scale commercial uses as part of a larger mixed-use development. However, the
following subdistricts allow "stand-alone" neighborhood-scale commercial uses subject
to specific criteria: PUD Neighborhood Village Center Subdistrict, Office and Infill
Commercial Subdistrict, Traditional Neighborhood Design Subdistrict, Orange Blossom
Mixed- U se Subdistrict, GoodlettelPine Ridge Commercial Infill Subdistrict, Vanderbilt
Beach/Collier Boulevard Commercial Subdistrict, Buckley Mixed Use Subdistrict,
Livingston/Pine Ridge Commercial Infill Subdistrict, Livingston Road/Eatonwood Lane
Commercial Infill Subdistrict, Livingston Road Commercial Infill Subdistrict and the
Rural Commercial Subdistrict.
The Golden Gate Area Master Plan Element (GGAMP) is much more restrictive than the
FLUE with regard to commercial development. However, all of the commercial
designations within the GGAMP would allow neighborhood commercial uses and are, for
the most part, restricted to such uses. The Immokalee Area Master Plan (lAMP) allows
neighborhood-scale commercial development within certain designated areas. Both the
lAMP and the GGAMP recognize certain areas as having pre-1989 commercial uses,
including those of a neighborhood scale.
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Recently, the County amended the text of the Traditional Neighborhood Design
Subdistrict in order to make this designation more attractive to small-scale commercial
development.
The EAR-Based Amendments should include new provisions, within the Future Land
Use Element, the Golden Gate Area Master Plan and the Immokalee Area Master Plan,
that would allow the siting of neighborhood-scale commercial uses at suitable locations
in or near residential areas. Such uses should be allowed, under appropriate conditions
and siting criteria, independent of specific commercial or mixed-use districts or sub-
districts.
Section 2.29: Urban Development Pattern - IndustriaVCommercial Locational
Criteria
Major Issue: The EAR will evaluate whether the industrial/commercial locational
criteria included in the plan have resulted in development that SUppOlts the County's
mixed-use planning strategies.
Staff Response: The demand projections conducted for the 1995 Evaluation and
Appraisal Report showed that county-wide there was sufficient industrial land until the
year 2020; however, when the demand projections were separated by area (Coastal Area
and Immokalee Area) the results showed that there may be a demand for additional
industrial by 2010 in the Coastal Area.
In May of 2001, the Economic Development Council (EDC) of Collier County began
meeting with Planning Services staff to discuss issues related to the adequate provision of
lands for the EDC's high tech target industries. As a result, staff conducted an Industrial
Inventory and found there were a limited number of parcels remaining in the Coastal
Urban Area that meet the location criteria for Business Park Subdistrict.
In response Planning Services Department staff drafted preliminary language for a new
land use provision to address incentives from a land use perspective and provide
additional incentives and opportunities for the development of industrial uses and
workforce housing within the County's Coastal Urban Area.
In 2002 the County adopted an amendment to the Future Land Use Element of the
Growth Management Plan to add the "Research and Technology Park Subdistrict". The
intent of this subdistrict is not to replace the existing "Industrial" District and "Business
Park" Subdistrict, but to provide an additional alternative and incentive to land owners
seeking to develop limited available land within the Coastal Urban Area. The Research
and Technology Park Subdistrict also includes locational criteria that provides incentives
for the provision of work force housing by allowing the Park to be located adjacent to
residential uses or zoning.
The provision of additional incentives and opportunities for the development of industrial
uses and workforce housing within the County's Coasta] Urban Area has been achieved
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WORKSHOP DRAFT
through the implementation of a new subdistrict ("Research and Technology Park
Subdistrict") and will only assist to further realize Collier County's mixed-use planning
strategies. Staff will continue to monitor industrial development within Collier County to
ensure the industrial inventory meets the demands of its growing population"
Section 2.30: Urban Development Pattern - Urban Residential Fringe and Activity
Center Subdistricts
Major Issue: The EAR will examine the type and amount of development that has
occurred within these subdistricts in order to evaluate the extent to which they have
achieved planning objectives related to mixed-use development and urban sprawl.
Staff Response: Commercially zoned land within the Mixed Use Activity Center
and Interchange Activity Center Subdistricts continues to be the dominant land use
category as most properties are rezoned to a commercial zoning district and develop with
commercial land uses. However, under the primary characteristics of what constitutes
urban sprawl as referenced in 9J-5.006(5)(g)(3), the main goal of these two activity
center subdistricts is to concentrate all new commercial development within carefully
configured access points to the main arterial roadway network. Based upon staff's
analysis, this has been deemed unsuccessful, and there continues to be commercial
development in radial, strip, isolated or ribbon patterns emanating outside of these
activity center subdistricts.
The majority of commercially zoned lands lie outside of activity centers. Some of these
lands are consistent with other commercial locational criteria in the FLUE. However,
most of these lands were zoned commercial at the time of the FLUE adoption in 1989 and
were subsequently evaluated under the County's zoning re-evaluation program pursuant
to former policy 3.1k and were allowed to retain their commercial zoning. These
properties are identified on the Consistent By Policy Maps, part of the Future Land Use
Map series, and are recognized in FLUE Policies 5.9 - 5.12. Also, some of these lands
were rezoned to commercial based upon the former activity center boundaries, and are
recognized in FLUE Policy 5.13.
Based upon the data and analysis, the integrity of the Urban Residential Fringe
Subdistrict in providing transitional densities between the Urban Designated Area and the
Agricultural/Rural Area has been maintained. Moreover, the residential land uses may be
allowed at a maximum density of 1.5 units per gross acre. The underlying objectives of
this subdistrict have been achieved in regards to preventing urban sprawl.
Section 2.31: Urban Development Pattern - Antiquated Platted Subdivisions
Major Issue: The EAR will evaluate the effectiveness of activities that have been
undertaken to implement plan objectives related to antiquated subdivisions.
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WORKSHOP DRAFT
Staff Response: This section of the E.A.R. summarizes Collier County's efforts at
managing growth in its large, antiquated subdivision areas, particularly Golden Gate
Estates. The Estates, with Golden Gate City, are regulated through the Golden Gate Area
Master Plan, an Element of the County's Growth Management Plan. This Element is
currently undergoing a two-phased amendment process, the Golden Gate Area Master
Plan Restudy. Phase 1 of the Restudy Amendments was approved in September of 2003
and has recently become effective. Phase 2 of the Restudy Amendments will be
transmitted to the Florida Department of Community Affairs during 2004.
The GGAMP was originally adopted in 1991 and was updated in 1997 and 2003. A
fourth set of update amendments, the Phase II Golden Gate Area Master Plan Restudy
Amendments, will be transmitted to the State in 2004.
The Master Planning process remains the best means by which to manage growth within
the antiquated subdivision areas. These areas are not amenable to large-scale deplatting
or replatting methods because a large percentage of the antiquated lots are currently
occupied by single-family homes. Perhaps, in the past, the County should have taken the
opportunity to replat portions of these areas, but that opportunity is now gone. Through
the Master Plan process, the County has taken a phased approach to gradually provide
these areas (particularly Golden Gate Estates) with public services and amenities.
Section 2.32: Urban Development Pattern - Traffic Congestion Boundary
Major Issue: The EAR will evaluate whether the Density Rating System (DRS), which
guides residential density within the Greater Naples Urban Area, and its use of the traffic
congestion boundary, which lowers the allocated density for developments located west
of the boundary, have been effective in achieving plan objectives related to hurricane
evacuation and urban infill.
Staff Response: The County's Density Rating System is contained within the
Future Land Use Element (FLUE), the Golden Gate Area Master Plan (GGAMP) and the
Immokalee Area Master Plan (lAMP). However, only the FLUE contains Density
Reduction Factors, such as the Traffic Congestion Area Boundary. The purpose of the
Density Rating System is to provide a methodology for allocating residential density (i.e.,
residential units per gross acre) through the development review process.
The Traffic Congestion Area Boundary Density Reduction Factor was intended as a
means of reducing long-range traffic impacts of new development within the coastal
urban area. This Density Reduction Factor was not intended to relate to hurricane
evacuation (at least, not directly). Additionally, it would not provide any incentive for
urban infill development. The text of the Reduction Factor is contained in part B., of this
section of the Evaluation & Appraisal Report.
However, even in regard to its intended purpose, the Traffic Congestion Area Boundary
Reduction Factor has not been effective. Therefore, as part of the EAR-based
amendments, this reduction factor should be deleted and replaced with a reduction factor
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xx Vlll
WORKSHOP DRAFT
relative to the Coastal High-Hazard Area. There are four (4) reasons for this
recommendation:
1. It is possible, by wise use of Density Bonus Provisions, to counteract the loss of
density caused by the Traffic Congestion Area Reduction Factor. For instance,
use of the Bonus Provision for conversion of commercial zoning can allow a
project to be eligible for the County's maximum allowable density (16 units per
acre ).
2. Historically, the majority of projects do not develop to their maximum approved
density at any rate. Thus, as regards the actual completion of an approved
development, the density reduction factor may have little or no impact.
3. The County has recently adopted a "checkbook" concurrency system, which in
many ways obviates the need for the Traffic Congestion Reduction Factor.
4. A Coastal High Hazard Area Density Reduction Factor would be more closely
related to reduction of hurricane evacuation impacts and would not be as much of
a disincentive to urban infill, as it would incorporate a smaller portion of the
urban area.
Section 2.33: Economic Development - Immokalee Urban Boundary
Major Issue: The EAR will evaluate the success of implementation activities in
attracting new businesses, permanent residents and financial investment to the
Immokalee Area.
Staff Response: There are two aspects to the above requirement. One aspect is an
evaluation as to whether the Immokalee Urban Boundary (i.e., the shape and size of the
Immokalee Urban Area Designation) has had an impact on the area's attraction of "new
businesses, permanent residents and financial investment." The second aspect of the
requirement concerns the manner in which Growth Management Plan goals, objectives
and policies relative to the Immokalee Area have been implemented, and the impact of
such implementation "in attracting new businesses, permanent residents and financial
investment to the Immokalee Area."
At this time, there is no justification for either contracting or expanding the current
boundaries of the Immokalee Urban Area. A review of the Immokalee Area Master Plan
(see Section 1.5.J of this report) does reveal a number of shortcomings. However, these
may be addressed without impacting the current Urban Boundary.
Collier County will continue to address planning issues within the currently designated
Immokalee Urban Area without the need for either contracting or expanding the current
Urban Boundary. If development patterns within surrounding RLSA areas so warrant,
the Immokalee Urban designation may be expanded into these areas as is appropriate.
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WORKSHOP DRAFT
Section 2.34: Economic Development - Immokalee Regional Airport
Major Issue: The EAR will evaluate the degree to which the industrial park and foreign
exchange zone located at the Immokalee Regional Airport property have achieved
economic benefits for the Immokalee Area.
Staff Response: Currently, the airport property (which appears on both the
Immokalee and Countywide Future Land Use Maps) has an industrial use designation,
both in the Immokalee Area Master Plan (see Section 1.5.1 of this report) and the Collier
County Land Development Code (LDC). A portion of the Airport property has been
leased to a private interest for the operation of a drag racing venue and associated
campground. Currently, these uses are under a Temporary Use Permit, however the
private lessee and the Collier County Airport Authority (which operates all County-
owned airports) are seeking to convert these uses to permanent features. Doing so would
require an amendment to the Immokalee Area Master Plan.
Currently, the Immokalee Area Master Plan (IAMP) and its Future Land Use Map
designate the Airport property as "Industrial District" (ID). According to the Land Use
Designation Description Section of the IAMP, the purpose of the Industrial Designation
"is to provide industrial type uses including those uses related to light manufacturing,
processing, storage and warehousing, wholesaling, distribution, packing houses,
recycling, high technology, laboratories, assembly, storage, computer and data
processing, business services, limited commercial such as child care centers, and
restaurants and other basic industrial uses but not including retail, as described in the
Land Development Code for the Industrial and Business Park Zoning Districts.
Accessory uses and structures customarily associated with the uses permitted in this
district, including offices, retail sales, and structures, which are customarily accessory
and clearly incidental and subordinate to, permitted principal uses and structures are also
permitted. "
Oddly enough, the Immokalee Industrial Designation (which includes primarily the
Airport property) does not have "Airport" as an allowed use. At a minimum, the
Industrial Designation should be amended to recognize the airport's existence.
As part of the current Immokalee Area Master Plan Evaluation, Collier County examined
the potential to convert the airport to some other use, such as an industrial park.
Unfortunately, several factors concerning the airport property act to prevent such a
converSIOn.
1. All three County airports, including Immokalee, are general aVIatIOn airports
included in the National Plan of Integrated Airport System (NPIAS). Membership
in NPIAS is required for an airport to be eligible to receive federal grants under
the Airport Improvement Program (AIP).
2. The Immokalee Airport property was obtained by quitclaim deed in 1960 under
the Federal Surplus Property Act. The deed contains a clause that the property
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shall be used for public airport purposes for the use and benefit of the public.
Except as provided in the following statement, the property may be re-transferred
only with the proviso that any such subsequent transferee assumes all the
obligations imposed by the deed. The property may not be used, sold, salvaged,
or disposed of for other than airport purposes without the written consent of the
FAA. The FAA will only grant consent if it determines that such can occur
without materially or adversely affecting the development, improvement,
operation or maintenance of the airport at which such property is located.
Therefore, it appears the County, with FAA approval, could sell or lease the
airport. Although the FAA has permitted and even encouraged some limited
forms of privatization, such as contracting for airport management or allowing
private companies to develop and lease terminals, it has, in the past, questioned
the sale or lease of an entire airport to a private entity.
3. A Deed of Release, dated June 9, 1965, released the County from the "national
emergency use" provision contained in the 1960 quitclaim deed, thus providing
the County with the ability to use certain areas of the property for industrial
purposes under long-term leasing arrangements.
4. 4. The Immokalee Airport and Industrial Park have received grant funds
through the end of FY 2002 totaling $6,412,129. This figure represents monies
received from 5 different grant agencies, including the U.S. Department of
Agriculture ($690,000), U.S. Department of Commerce ($793,073), U.S.
Department of Housing and Urban Development ($750,000), Florida Office of the
Governor ($327,773), and FDOT ($3,851,283). Any grant funds received in FY
03 would need to be added to this amount. There is a potential liability to the
County for the repayment of the full amount of this grant money, or some portion
thereof. The exact amount would have to be determined by the respective
agencIes.
5. The airport has 30 T-hangars that are leased on a month-to-month basis. Of the 13
property subleases, 4 are on a month-to-month basis, 2 are on a year-to-year basis,
and one is pending renewal. Of the remaining 6, 4 expire between July 31, 2004
and March 31, 2008; one expires in 2025 and one in 2028. A legal opinion is
needed to determine any penalties to the County for early termination of any or all
of these leases. Additionally, grant funds are associated with some of the building
leases.
6. Selling the Immokalee Airport does not appear to be a feasible option; however, if
the Board of County Commissioners wished to pursue this option, further research
would be needed.
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WORKSHOP DRAFT
The EAR-based amendments should include an amendment to the Immokalee Area
Master Plan's Industrial Designation that recognizes the Airport as a permitted use.
Recently, Collier County has adopted a Countywide Economic Incentives Package that
includes specific provisions for the Immokalee Area. This package should be adopted by
reference in the County's Economic Element, and these incentives should be included in
any marketing campaign relative to the Immokalee Airport.
Section 2.35: Historical and Archeological Resources
Arrangements
Administrative
Major Issue: The EAR will evaluate the County's implementation activities, including
current administrative arrangements such as enforcement through the Zoning &
Development Review Department's review of Rezoning Applications; have been
successful in achieving planning objectives.
Staff Response: The Collier County Historic & Archaeological Preservation Board
is vested with the power, authority, and jurisdiction to designate, regulate, and administer
historical and archaeological resources in Collier County, as set forth in Section 5.14 of
the Land Development Code, under the direct jurisdiction and control of the Board of
County Commissioners. The Preservation Board functions as an advisory board to the
Board of County Commissioners.
The Collier County Historic & Archaeological Preservation Board consists of seven
members that have been appointed by the Board of County Commissioners.
Appointments by the Board of County Commissioners are on the basis of a potential
member's involvement in community issues, integrity, experience, and interest in the
field of historical and archaeological preservation. Each member of the Preservation
Board must also be a resident of Collier County, Florida.
Each member of the Historic Preservation Board represents one of the following
categories:
1. History
2. Archaeology
3. Real Estate, Land Development or Finance
4. Architecture, Engineering, Building Construction, and/or Landscape Architecture
5. Law or Urban Planning.
The designation of specific sites, structures, buildings, districts, and properties may be
initiated by the Preservation Board or by a property owner. Upon consideration of the
Preservation Board's findings and recommendations, and upon the consideration of the
criteria and guidelines contained in the Land Development Code, the Board of County
Commissioners may either approve, by resolution, or deny a petition for historic
designation. The Board of County Commissioners has designated the following sites and
structures as locally significant.
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Smallwood's Store, Chokoloskee Island: This store was established in 1906 and is now
one of the oldest buildings in Collier County. The structure is also listed on the National
Register of Historic Places.
Weaver's Station, East U.S. 41: This is one of the original way stations erected in 1928
on the Tamiami Trail.
Rosemary Cemetery, U.S. 41 at Pine Ridge Road: There are 60 people buried in
Rosemary Cemetery, which was established by E.W. Crayton in 1931. Many of the
decedents were early pioneers to the area and were considered founding fathers of Collier
County.
Ochopee Post Office, Ochopee: Established in 1953, this is the smallest of all the United
States Post Offices and is still a significant and functioning reminder of the early tomato
farming community in Ochopee. The structure is also listed on the National Register of
Historic Places.
Captain John Horr House, Key Marco: Remains of the home of one of the early
settlers in the Marco Island Area. The Board of County Commissioners designated this
structure as locally significant in 1996. The structure is also listed on the National
Register of Historic Places.
The County has recently completed an update to its Historical/Archaeological Probability
Model and the accompanying series of Historical! Archaeological Probability Maps.
These documents provide the framework for a unified and consistent program for the
administrative arrangements of Collier County's historical and archaeological resources.
While the model and maps identify the areas of highest archaeological probability to the
best of available information, there can be no question that prehistoric and historic
archaeological sites will occur outside the delimited probability areas, and some
probability areas may not contain any sites. Future research will refine the model to
account for these deviations. No archaeological probability model is static; each is a
"working document" which requires periodic revision.
The County is of the opinion that all enabling objectives and policies relevant to this
issue should be retained and that no new objectives and policies need to be adopted.
Summary of Special Topics & County Staff Responses:
Section 3.1: Coordinating future land uses and residential development with the
capacity of existing and planned schools
Special Topic: An assessment of the success or failure of coordinating future land
uses and residential development with the capacity of existing and planned schools,
establishing with the school board appropriate population projections and coordinating
the planning and siting of new schools (School Planning).
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WORKSHOP DRAFT
Staff Response: Overall, coordination between the Collier County School Board
and Board of County Commissioners has been successful - schools have been
constructed proximate to the population base and in a timely manner. However, both
entities have acknowledged that improvements could be made. In May 2003, both the
Collier County School Board and Collier County Board of County Commissioners (BCC)
- as well as the three incorporated cities - adopted Interlocal Agreements pertaining to
school siting (see attached Agreements). The agreements establish specific processes for
determining consistency with the Growth Management Plan - including mapping sites
containing existing schools and support facilities and mapping existing sites owned by
the School Board for future schools and support facilities; conformance with zoning and
other land development regulations; and, sharing of demographic information. A GMP
amendment to implement the Interlocal Agreements was adopted by the Board of County
Commissioners on December 16, 2003. Implementing amendments to the Collier County
Land Development Code have already been adopted.
Staff is not recommending that any additional implementing amendments be included
within the EAR-based amendments.
Section 3.2: Compliance with the South Florida Water Management District's Lower
West Coast Regional Water Supply Plan
Special Topic: An assessment of the local comprehensive plan with respect to the
appropriate water management district's regional water supply plan, including whether
the potable water element should be revised to include a work plan, covering at least a
lO-year period for building water supply facilities for which the local government is
responsible that are needed to serve existing and projected development (Water
Supply/Land Use Planning).
Staff Response: In May 2002, the Florida Legislature amended Chapter 163,
Florida Statutes (F.S.) requiring the preparation and adoption of a 10-year Water Supply
Facilities Work Plan (WSFWP) by local governments with water supply facility
responsibilities. This WSFWP is required to assess water needs and sources in
conjunction with the local regional water supply plan to strengthen coordination of water
supply planning and local land use planning for the Collier County Water-Sewer District
(CCWSD), the Town of Immokalee, the Florida Governmental Utility Authority (Golden
Gate City) and the Orange Tree Utility. During the Evaluation and Appraisal Report
(EAR), four Collier County Growth Management Plan (GMP) Elements must be
evaluated for consistency with the WSFWP and the plans of the regional water
management districts, in this case the Lower West Coast Water Supply Plan (LWCWSP).
The incorporated municipalities within Collier County, the City of Naples, the City of
Marco Island, and Everglades City, will each submit their own Water Supply Facilities
Work Plans and as appropriate, enabling GMP amendments, pursuant to the amended
Florida Legislature requirements.
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Collier County' s Water-Sewer District currently serves approximately 118,116 customers
on a permanent population basis with potable water. Based on total future projected
growth in the potential, it is estimated that the County will be serving approximately
229,200 customers with potable water in the Year 2013. In 2001, Collier County updated
the Water Master Plan, recognizing the need to provide water services to a rapidly
growing population. At the time, the existing Water Master Plan had not been updated in
approximately four years.
The Water Master Plan Update was updated in 2002 to continue to plan for future water
supply and infrastructure needs to meet the requirements of growth, infrastmcture
renewal, replacement and enhancement. The updated Water Master Plan Update contains
a recommended program of Objectives to be achieved during a five-year period (see
Section 3.2).
Although there will be a considerable degree of difference in timing between the
preparation of the EAR and the adoption of the Master Plan, the water demand
projections modeled in this document use a methodology for the CCWSD similar to those
previously used and approved by the SFWMD. The WSFWP contains analysis and
explanation of those small differences.
The WSFWP, prepared using the 2002 Water Master Plan Update, is secondary to the
most recently adopted Water Master Plan Update as the County's official plan for water
capital improvements and the basis for a 5-year Capital Improvement Schedule indicated
in the updated Capital Improvement Element.
An analysis of objectives and policies in the Potable Water Sub-Element, Conservation
and Intergovernmental Coordination Element of the GMP was conducted to evaluate the
adequacy of the GMP with the new statutory requirements. The evaluation showed that
some policy modifications and additions are necessary to bring the GMP into full
compliance with these requirements. These are listed in Section 3.2 of this Report.
Section 3.3: Whether past reduction in land use density within the CHHA impairs the
property rights of current residents when redevelopment occurs.
Special Topic: An evaluation of whether past reduction in land use density within
the CHHA impairs the property rights of current residents when redevelopment occurs.
The local government must identify strategies to address redevelopment and the right of
affected resident balanced against public safety considerations (coastal development
patterns) .
Staff Response: Since the adoption the last comprehensive plan, the Collier County
Board of County Commissioners have not instituted any policies or programs that have
resulted in a reduction of density within the Coastal High Hazard Area (CHHA).
Therefore, the property rights of existing landowners and residents within the CHHA
have not been impaired.
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The County does have a "build-back" policy in the aftermath of coastal storms, erosion
and hurricane events. However, there has never been a natural disaster serious enough to
warrant the County Commission putting this policy into operation. Further, the County
Building Review and Permitting Department operates a repetitive loss program.
Periodically, structures meeting the County's repetitive loss criteria are removed.
However, the County has evaluated the level of building activity within the CHHA over
the past seven years and has determined that the property rights of existing landowners
and residents within the CHHA have not been impaired.
Therefore, there are no recommended changes to County policies or programs relative to
this issue.
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XXXVI
TABLE OF CONTENTS
CHAPTER 1-COUNTYWIDE ASSESSMENT
1.1 Population and Growth and Changes in Land Area
1.2 The Location of Existing Development in Relation to the Location of Development as Anticipated in the
Comprehensive Plan
1.3 The Extent of Vacant and Developable Land
1.4 The Financial Feasibility of Providing Needed Infrastructure to Achieve and Maintain Adopted Level of
Service Standards and Sustain Concurrency through Capital Improvements
1.5 A Brief Assessment of Success, Shortcomings, and Recommendations related to each of the CCGMP's
Elements
A. 1996 Capital Improvement Element
B. 1997 Transportation Element
C. 1997 Public Facilities Element:
1. Sanitary Sewer Sub-Element
2. Potable Water Sub-Element
3. Drainage Sub-Element
4. Solid Waste Sub-Element
5. Natural Groundwater Aquifer Recharge Sub-Element
D. 1997 Housing Element
E. 1997 Recreation and Open Space Element
F. 1997 Conservation and Coastal Management Element
G. 1997 Intergovernmental Coordination Element
H. 1997 Future Land Use Development
I. 1997 Golden Gate Area Master Plan
J. 1997 Immokalee Area Master Plan
K. 1996 Marco Island Master Plan
1
1.6 Relevant Changes in Growth Management Laws (the comprehensive plan, the appropriate strategic
regional policy plan, Chapter 163, part II, F.S., and Chapter 9J-5, F.A.C)
1.7 A Summary of Public Participation activities in Preparing the Report
CHAPTER 2-EVALUATION OF MAJOR ISSUES
2.1 Concurrency Management - Revenue Streams
2.2 Concurrency Management - Transportation Improvements
2.3 Concurrency Management - Development Vested from Transportation Concurrency
2.4 Concurrency Management - Financial Feasibility of Transportation Improvement Projects
2.5 Concurrency Management - Level of Service Standards for Regional and Community Parks
2.6 Concurrency Management - Capital Expenditures for Recreation Facilities
2.7 Concurrency Management - Construction Cost Index-Level of Service Standards for Parks Capital
Facilities
2.8 Concurrency Management - Public Beach and Waterway Access
2.9 Affordable Housing - Current Demand
2.10 Affordable Housing - Non-profit Housing Development Corporation
2.11 Affordable Housing - Density Bonus Provisions
2.12 Affordable Housing - Loan Tracking
2.13 Affordable Housing - Undeveloped Lots
2.14 Affordable Housing - Infill Development
2.15 Affordable Housing - Comprehensive Housing Inventory
2.16 Affordable Housing - Demolition of Unsafe Housing
2.17 Affordable Housing - Historically Significant Homes
2.18 Affordable Housing - Affordable Housing by Right
2.18.1 Affordable Housing - Immokalee Housing
2.19 Environmental Resource and Habitat Protection - Habitat Restoration
2.20 Environmental Resource and Habitat Protection - Environmental Management Programs
2.21 Environmental Resource and Habitat Protection - Coastal Barrier and Estuarine Resources
2.22 Hurricane Evacuation - Limiting Development in the Coastal High Hazard Area
2
2.23 Hurricane Evacuation - Limiting Public Expenditures that Subsidize Development in the Coastal High
Hazard Areas (CHHA)
2.24 Hurricane Evacuation - Maintenance of Clearance Times and Adequate Shelter Space
2.25 Hurricane Evacuation - The Coastal Construction Control Line Program
2.26 Wellhead Protection - Administrative Arrangement
2.27 Urban Development Pattern - Redevelopment Areas
2.28 Urban Development Pattern - Neighborhood Commercial
2.29 Urban Development Pattern - Industrial/Commercial Locational Criteria
2.30 Urban Development Pattern - Urban Residential Fringe and Activity Center Subdistricts
2.31 Urban Development Pattern - Antiquated Platted Subdivisions
2.32 Urban Development Pattern - Traffic Congestions Boundary
2.33 Economic Development - Immokalee Urban Boundary
2.34 Economic Development -Immokalee Regional Airport
2.35 Historical and Archeological Resources - Administrative Arrangements
CHAPTER 3-SPECIAL TOPICS
3.1 An assessment of the success or failure of coordinating future land uses and residential development
with the capacity of existing and planned schools, establishing with the school board appropriate
population projections and coordinating the planning and siting of new schools.
3.2 An assessment of the comprehensive plan with respect to the management district's regional water
supply plan, including whether the potable water element should be revised to include a work plan,
covering at least a 1 O-year period for building water supply facilities for which the local government is
responsible that are needed to serve existing and projected development.
3.3 An evaluation of whether and past reduction in land use density within the CHHA impairs the property
rights of current residents when redevelopment occurs. The local government must identify strategies
to address redevelopment and the right of affected resident balanced against public safety
considerations.
3