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Agenda 03/05/2019 W - Growth & DevelopmentCOLLIER COUNTY Board of County Commissioners BCC/GROWTH & DEVELOPMENT WORKSHOP AGENDA Board of County Commission Chambers Collier County Government Center 3299 Tamiami Trail East, 3rd Floor Naples, FL 34112 March 05, 2019 9:00 AM Commissioner William L. McDaniel, Jr., District 5 - Chair; CRAB Co-Chair Commissioner Burt Saunders, District 3 – Vice-Chair Commissioner Donna Fiala, District 1; CRAB Co-Chair Commissioner Andy Solis, District 2 Commissioner Penny Taylor, District 4 Notice: All persons wishing to speak must turn in a speaker slip. Each speaker will receive no more than three (3) minutes. Collier County Ordinance No. 2003-53 as amended by Ordinance 2004-05 and 2007-24, requires that all lobbyists shall, before engaging in any lobbying activities (including but not limited to, addressing the Board of County Commissioners), register with the Clerk to the Board at the Board Minutes and Records Department. 1. PLEDGE OF ALLEGIANCE 2. WORKSHOP TOPICS 2.A. Future Land Use/Build Out - Staff Presentation (Mike Bosi) 3. PUBLIC COMMENTS 4. ADJOURN Inquiries concerning changes to the Board’s Agenda should be made to the County Manager’s Office at 252-8383. 03/05/2019 COLLIER COUNTY Board of County Commissioners Item Number: 2.A Item Summary: Future Land Use/Build Out - Staff Presentation (Mike Bosi) Meeting Date: 03/05/2019 Prepared by: Title: Operations Analyst – County Manager's Office Name: Geoffrey Willig 02/22/2019 11:47 AM Submitted by: Title: County Manager – County Manager's Office Name: Leo E. Ochs 02/22/2019 11:47 AM Approved By: Review: County Manager's Office Geoffrey Willig County Manager Review Completed 02/27/2019 4:02 PM Board of County Commissioners MaryJo Brock Meeting Pending 03/05/2019 9:00 AM 2.A Packet Pg. 3 This memorandum highlights key planning initiatives undertaken by Collier County to better understand future populations and the impacts of growth on community characteristics: quality of life, diversity of housing needs, economic development, public health, safety and wellbeing. While these are among major initiatives, Staff recognizes that many other efforts have been conducted, affecting a number of community characteristics. The prominent efforts below attempted to quantify the build-out populations and discuss/evaluate policies to promote a community that reflected the priorities and needs of a diversifying population. Community Character Plan (1999-2002) In 1999, as part of a settlement with the State, the Collier Board of Commissioners agreed to both redo its official Growth Management Plan and undertake a broader community planning effort. Emerging from the second of these tracks, the Community Character Plan was directed by a citizen’s advisory panel and adopted in 2001. Its purpose was to increase citizen interest, generate new ideas and set a new direction for county policies to better shape the built environment. Because key elements of the effort were education and consensus-building, the plan included an intensive period of public input. Ten large public meetings were held, including four hands-on planning sessions. The final plan was illustrated with photorealistic “before-and-after” simulations, diagrams and change-over-time scenarios whose purpose was to help County residents visualize the implications of community-design decisions. The bulk of the plan is contained in manuals devoted to community design, mobility and green space. These are followed by an implementation section that translates general recommendations into precise suggestions for changes to official county planning documents. The intent of this implementation work was to make it as easy as possible for county planners to follow the thread of public interest through to the correct formulations of technical language. The seven hallmarks of the Community Character Plan are: 1. Design… The spaces between buildings are as important as the private realms inside them. Development should be designed so that the architecture and neighborly arrangement imp art enduring images of beauty, confidence and societal continuity while making daily life more practical. 2. Choice… Provide more housing choices in Collier County by reintroducing walkable traditional neighborhood development as an alternative to the multitude of gated subdivisions that have been built over the past 20 years. 3. Balance… Create a balanced road network by improving Collier's principal arterial roads while simultaneously creating a secondary network of smaller roads that link neighborhoods. 4.Connections… Make frequent connections between new neighborhoods and the land around them, and fully integrate them with the secondary street network and with parks and other urban open spaces. Improve existing neighborhoods in the same way. 2.A.1 Packet Pg. 4 Attachment: Growth - Memo (8137 : Future Land Use/Build Out - Staff Presentation) 5. Growing smart… All new development approvals should be based on a resilient pattern of streets and lots, because the initial street and lot pattern will long outlast the first generation of buildings and land uses that are placed on them. 6. Hold the line… Make much better use of the remaining vacant acreage within the existing urban boundary before allowing new development to creep further into the countryside. 7. Respect environmentally sensitive places… Enhance the character of Collier's more rural and environmentally sensitive places through rural design techniques and further protection of the County's vital natural resources. It should be noted that the plan was awarded the “2002 Place Planning Award”, by the Environmental Design Research Association. East of CR951 Horizon Study (2004-2011) Following up on the guidance of the Community Character Plan, on June 29, 2004, the Collier County Board of County Commissioners authorized funding for the East of County Road 951 Horizon Study. The premise of the Study was to project population growth for the geographic area east of Collier Boulevard at build-out and identify three levels of infrastructure and service projections to serve the demands of the projected population. At its core, the Horizon Study effort was a multi-year project to assess the questions of sustainability and level of service choices related to infrastructure and services. The Horizon Study was separated in two phases. The first phase, the Preliminary Report, heard by the BCC at a May 24, 2006 workshop, identified three levels of service for each of the infrastructure and service providers within the Study area and allocated costs associated with the projected infrastructure and services outlay. The first phase projected a County build out population of 1,066,420. At the May 24, 2006 workshop, the BCC directed a second phase of the Study- to gain insight from the residents of the study area and to assist in developing priorities for the County’s future expenditures on capital infrastructure and services. The BCC created the Horizon Study Public Participation Master Committee to direct the second phase. The East of CR951 Horizon Study Public Participation process, steered by the Public Participation Master Committee, was a 23 month long process of public presentations designed to inform the general public of the specifics of the provisions of the various infrastructure and service providers, while professionally polling and soliciting input from the residents of the Study area in relation to their perspectives and preferences related to potential growth outlays, the costs identified and opportunities related to growth. Essentially this was a two-year discussion with the community on their perspective on growth and development. In addition to the public participation portion (as well as the correlated Bridge Study which is discussed on the following page) Phase Two directed the development of the Collier County Interactive Growth Model (CIGM). At the inception of the East of CR951 Study, the BCC issued a policy directive that the study would not include a land use component. The intent behind the 2.A.1 Packet Pg. 5 Attachment: Growth - Memo (8137 : Future Land Use/Build Out - Staff Presentation) directive was that future land use changes should not influence the analysis of infrastructure needs in the area east of CR951. Although this intent was fundamentally sound in concept, generally accepted planning practices and principles recognize the need to link land use planning with transportation planning and other infrastructure needs. Based upon this recognition, the BCC directed staff to enter into a contract with Van Buskirk, Ryffel and Associates to initiate the development of a land use modeling tool to assist with timing and locational parameters related to infrastructure and service provisions- the Collier CIGM. As noted, the purpose of the Collier Interactive Growth Model (CIGM) was to forecast the spatial distribution of the County’s population over time and to forecast the apportionment of land uses necessary to meet the needs of the population, in the most cost-effective manner. The specific goals of the study included: • Accurately forecast the population over time to build-out in the study area • Forecast when and where growth will take place; • Determine if there will be sufficient land uses designated to support the characteristics of the population; • Determine the need for supporting land uses by type and intensity; • Forecast the timing and spacing of supporting facilities such as schools, parks, commercial centers and fire stations; • Train staff on CIGM operations and annual updating; • Provide data for graphic interpretation of CIGM results. The estimated build-out population project by the original CIGM estimated 950,233 persons at build-out. The Bridge Study began during the second phase of the Horizon Study based upon consultations between the Master Committee and the Transportation Department. During the 2003 update of the Golden Gate Area Master Plan, the concept of bridging strategic locations within the Sub-district was promoted. As part of the Horizon Study discussions with the Transportation planning staff, the concept of increasing the mobility within the Golden Gate Estates through a series of strategically placed bridges resurfaced. From these discussions the benefit from a study of potential bridges in the Estates area became apparent. Master Mobility Plan (2009-2012) Coinciding with the end of the Horizon Study, the County through a U.S. Department of Energy grant, commissioned the Master Mobility Plan (MMP). The purpose of the MMP was to develop a long-term vision to aid in planning for the county’s mobility, land use, and infrastructure needs at population build‐out. The primary goal of the MMP is to reduce greenhouse gas emissions (GHG) specifically by reducing Vehicle Miles Traveled (VMT) and Vehicle Hours Traveled (VHT) while at the same time protecting habitats, environmentally‐sensitive lands, and agriculture. The goals and objectives of the plan were to: ▪ Increase and improve cost-effective, environmentally responsible mobility options. 2.A.1 Packet Pg. 6 Attachment: Growth - Memo (8137 : Future Land Use/Build Out - Staff Presentation) ▪ Reduce transportation facility needs and corresponding maintenance requirements. ▪ Increase the mobility system efficiency (reduces total costs and increase benefits). ▪ Reduce resource costs, such as the amount of fuel consumed per unit of transport, and the amount of land needed for transport facilities. ▪ Significantly reduce vehicles miles traveled- the savings that result when motorist reduce mileage are widely distributed throughout the economy. Desired Outcomes ▪ Reduction in Vehicle Miles Traveled ▪ Reduction in Congestion- Travel Delay ▪ Improved Mobility Options ▪ Facility Cost Savings ▪ Consumer Cost Savings ▪ Energy Conservation ▪ Reduction in Greenhouse Gases ▪ Physical Fitness & Health ▪ Community Livability The effort was a two-year conversation with the public intended to provide strategic guidance for future policy recommendations that reduce vehicle miles travelled and vehicle hours travelled. Goal implementation planning was shaped by a conceptual: Land Use Plan, Mobility Plan, Infrastructure Plan and Wildlife Crossings & Habitat Preservation Plan. Collier Inter-Active Growth Model 3.0 As noted within this memorandum, in 2007 the BCC authorized the development of the CIGM as a supplemental planning tool to better understand the spatial distribution of population over time, and to better assist in planning for future infrastructure needs and identify opportunities within our land planning arrangement. The 2007 CIGM only covered the land area east of County Road 951, which limited the effectiveness of the model as a supplemental planning tool. The updated CIGM 3.0, authorized in October 2017, now models the entire county. This increases the overall utility for this planning tool. With the forecasting of future populations, the model also approximates the needed amount of commercial square footage to support that population, as well as industrial and institutional needs. The identification of the necessary land use categories that support the residential population of the County is essential to understanding the market and the appropriate levels of zoning designations to support the growing and diverse needs of the County. This provides the County with a supplemental planning tool that helps evaluate appropriate land use budgeting and foster a better understanding of the cost implications of current and future land use decisions. The CIGM was designed to provide for the Transportation Division’s update to the Long Range Transportation Plan (LRTP), as well as Public Utilities Water-Sewer District Master Plan based upon the Traffic Analysis Zone (TAZ) structure of the model. This better ties between transportation and public 2.A.1 Packet Pg. 7 Attachment: Growth - Memo (8137 : Future Land Use/Build Out - Staff Presentation) utilities systems improvements and specific future land use activities allows for an improved modeling effort, which helps reduce the inherent cost inefficiencies associated with projections. The estimated build-out population projected by the CIGM 3.0 is 807,764 persons at build-out. Growth Management Plan Updates On February 2015 the Board directed staff to initiate the review of the four sub-area/masterplans within the Growth Management Plan, east of County Road 951. Those four sub areas are: The Golden Gate Area Master Plan, the Immokalee Area Master Plan, the Rural Fringe Mixed Use district and the Rural Lands Stewardship district. Within the public review of each of these sub area plans the following Smart Growth issues were the focus of the review: Community Quality of Life, Design of the Built Environment, Economics, Environmental Stewardship, Public Health, Housing Diversity and Transportation. The importance of the evaluation of these for sub area plans is elevated based upon the population projections for the County over the next two decades is anticipating 120, 000 to 160,000 additional persons. To accommodate the population increase expected for the County and the area East of County Road 951, the land use arrangements provided within the sub areas ideally will provide for a more efficient allocation of varied lands uses to not only satisfy the housing needs of this future population, but to provide for employment needs for the continued business expansions and market demands these future populations will create. Currently Two of the four sub areas (Golden Gate & Immokalee) are within the Transmittal stage of the growth management plan amendment process, with the other two (RLSA & RFMUD) expected to initiate the Transmittal GMP-A process within 2019. The Transmittal process is the culmination of numerous public outreach meetings, consensus building meetings and inter-governmental coordination on the various issues and smart growth principals identified above as center pieces of the Community conversation. Decision-making and Studies Each of the above initiatives have focused on the County’s ability to direct and manage expected population growth and how that growth can best be arranged and allocated. It should be noted that the above list is not a comprehensive collection of all growth management related documents generated by the County. Other initiatives informing growth management include the adoption of the Water Management Plan, to help address storm water management on a regional basis; updates to various Master plans for such facilities as Parks, Law Enforcement, Correctional Facilities, General Governmental Space and Libraries. Additionally, updates to the Long-Range Transportation Plan and Water Supply Plan has been provided on regular 5-year increments and currently four master plans within the Growth Management Plan are in the process of engaging the community on updates and policy improvements to better influence how the County moves into the future. Within each of the described efforts are community values and policies that form the bedrock of planning principals promoted by the Growth Management Plan and Land Development Code. These concepts include: Community Quality of Life, Design, Economics, Environment, Health, Housing Choices and Transportation-Interconnectivity. These bedrock concepts advance the below identified Smart Growth Principles: 2.A.1 Packet Pg. 8 Attachment: Growth - Memo (8137 : Future Land Use/Build Out - Staff Presentation) • Create Range of Housing Opportunities and Choices • Create Walkable Neighborhoods • Encourage Community and Stakeholder Collaboration • Foster Distinctive, Attractive Communities with a Strong Sense of Place • Make Development Decisions Predictable, Fair and Cost Effective • Mix Land Uses • Preserve Open Space, Farmland, Natural Beauty and Critical Environmental Areas • Provide a Variety of Transportation Choices • Take Advantage of Compact Building Design These bedrock concepts, community values and smart growth principles have guided the evolution of both the GMP and the LDC. They also guide the GMP restudy efforts and continue to be key factors in the County’s land use decision making process. This memorandum highlights the County’s broad scale efforts over the past two decades to best manage growth and development, including concepts and principles of the LDC and GMP. Their evolution will continue to influence the County’s decision making to help ensure the most sustainable tomorrow. The concepts identified above are intended to provide a platform for discussion at the March 5, 2019 Board Workshop. 2.A.1 Packet Pg. 9 Attachment: Growth - Memo (8137 : Future Land Use/Build Out - Staff Presentation) 2.A.2 Packet Pg. 10 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) Density in Context GUIDING FACTORS TO PLACEMAKING Context -the interrelated conditions in which something exists or occurs 2.A.2 Packet Pg. 11 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) Collier County Population by Decade Census Year Permanent Population Percent Change 1930 2,883 1940 5,102 76.97% 1950 6,488 27.17% 1960 15,753 142.80% 1970 38,040 141.48% 1980 85,971 126.00% 1990 152,099 76.92% 2000 251,377 65.27% 2010 321,520 27.90% Estimate 2019 372,880 15.97% 2.A.2 Packet Pg. 12 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) 1952 1959 North North 2.A.2 Packet Pg. 13 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) 1962 North North 2.A.2 Packet Pg. 14 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) 1978 North North 2.A.2 Packet Pg. 15 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) 1997 FLUM 2.A.2 Packet Pg. 16 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) Current FLUM 2.A.2 Packet Pg. 17 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) GMP Adopted Underlying Concepts u 1. Protection of Natural Resource Systems u 2. Coordination of Land Use and Public Facilities u 3. Management of Coastal Development u 4. Provision of Adequate and Affordable Housing u 5. Attainment of High Quality Urban Design u 6. Improved Efficiency and Effectiveness in the Land Use Regulatory Process u 7. Protection of Private Property Rights 2.A.2 Packet Pg. 18 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) 2.A.2 Packet Pg. 19 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) u Preserve Open Space, Farmland, Natural Beauty and Critical Environmental Areas u Make Development Decisions Predictable, Fair and Cost Effective u Create Range of Housing Opportunities and Choices u Foster Distinctive, Attractive Communities with a Strong Sense of Place u Encourage Community and Stakeholder Collaboration u Provide a Variety of Transportation Choices u Mix Land Uses u Take Advantage of Compact Building Design u Create Walkable Neighborhoods 2.A.2 Packet Pg. 20 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) 2.A.2 Packet Pg. 21 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) u Community Character Plan (1999-2002)Promoted:Design,Choice,Balance, Connections,Growing Smart,Urban Development and Environmental Protections u Master Mobility Plan (2009-2012)Promoted:Reduction in Vehicle Miles Traveled, Reduction in Congestion-Travel Delay,Increase and Improve Mobility Options, Energy Conservation,Reduction in Greenhouse Gases,Physical Fitness &Health & Community Livability u East of CR951 Horizon Study (2004-2011)Multi-year effort to discuss issues of growth and development with the community and determine preferences regarding level of service for infrastructure,evaluated against revenue projections and availability. u Collier Inter-Active Growth Model 3.0 (2017-Ongoing)Board accepted supplemental planning tool to better help identify when and where growth will transpire with focus on land use budgeting. u Growth Management Plan Four Sub-Area Updates (2015-On-going)Board directed updating of the Growth Management Plans for area East of County Road 951. 2.A.2 Packet Pg. 22 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) 2.A.2 Packet Pg. 23 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) 2.A.2 Packet Pg. 24 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) GMP Infill OBJECTIVE 2:Coordinate land uses with the availability of public facilities,accomplished through the Concurrency Management System of the Capital Improvement Element and implemented through the Adequate Public Facilities Ordinance of the Land Development Code. Policy 2.6:The County has designated Transportation Concurrency Management Areas (TCMA)to encourage compact urban development where an integrated and connected network of roads is in place that provides multiple,viable alternative travel paths or modes for common trips. 2.A.2 Packet Pg. 25 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) BCC Actions to support higher density/housing diversity u New Hope Ministries -16 units per acre;approved on Summary Agenda December 13, 2016 -Northeast Corner of Davis and Santa Barbra Blvd. u Briarwood -Net 20 units per acre;approved on Regular Agenda October 24, 2017 –Northeast Corner of Radio Road and Livingston. u I-75 Alligator Alley -Net 14.5 units per acre;approved on Regular Agenda October 23,2018 –Intersection of Davis Blvd,CR 951 and I-75. u Mini Triangle –Gross 70.4 units per acre,net 97.9 units per acre; approved on Regular Agenda May 8, 2018 –Intersection of Davis Blvd and US41 u Pine Ridge Commons -Gross 10.5 units per acre,net 27 units per acre; approved on Regular Agenda September 11, 2018 –Northeast corner of Pine Ridge Road and Livingstone Road. 2.A.2 Packet Pg. 26 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) Value of infill development/redevelopment u Full arrangement of infrastructure and services available to projects u Bring under-utilized lands into useful production and contribute to needs of urban area u Opportunity with higher density to increase variety and availability of wider range of housing choices u Opportunity to bring housing to where the employment needs are the greatest u Increase viability of transit usership u Delay timing for greenfield development in Eastern Collier (Reduced Infrastructure spending) u Reduction in Vehicular Miles Travelled u Lowers cost of infrastructure replacement on a per unit basis 2.A.2 Packet Pg. 27 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) GMP Smart Growth Policies -GMP u OBJECTIVE 7: u Promote smart growth policies, reduce greenhouse gas emissions, and adhere to the existing development character of the Collier County, where applicable, and as follows: u Policy 7.1: u The County shall encourage developers and property owners to connect their properties to fronting collector and arterial roads, except where no such connection can be made without violating intersection spacing requirements of the Land Development Code. u Policy 7.2: u The County shall encourage internal accesses or loop roads in an effort to help reduce vehicle congestion on nearby collector and arterial roads and minimize the need for traffic signals. u Policy 7.3: u All new and existing developments shall be encouraged to connect their local streets and/or interconnection points with adjoining neighborhoods or other developments regardless of land use type. The interconnection of local streets between developments is also addressed in Policy 9.3 of the Transportation Element. u Policy 7.4: u The County shall encourage new developments to provide walkable communities with a blend of densities, common open spaces, civic facilities and a range of housing prices and types. 2.A.2 Packet Pg. 28 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) Influence of Connectivity 2.A.2 Packet Pg. 29 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) Influence of Connectivity 2.A.2 Packet Pg. 30 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) 2040 Projected Permanent Population uBEBR –495,600 (+122,720 or 32.9%) 5,843 per year average* uCIGM –535,426 (+162,546 or 43.5%) 7,740 per year average* u*2018 AUIR 6,352 per year average 2.A.2 Packet Pg. 31 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) 535,426 Population County Wide Distribution 2.A.2 Packet Pg. 32 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) Land use Budgeting, Cost of Service land use categories u Residential consumes approximately $1.15-1.50 for every $1 of Tax collected u Commercial consumes approximately $.65 for every $1 of Tax collected u Industrial consumes approximately $.50 for every $1 of Tax collected u Agriculture consumes approximately $.35 for every $1 of tax collected 2.A.2 Packet Pg. 33 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) Residential -149,280 acres 84% Commercial -24,226 acres 13.7% Industrial -4,020 acres 2.3% 2.A.2 Packet Pg. 34 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) Land Use budgeting 2.A.2 Packet Pg. 35 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) North Naples, benefit of vertical development 2.A.2 Packet Pg. 36 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) 2.A.2 Packet Pg. 37 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) 2.A.2 Packet Pg. 38 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation) Recommendations u Complete the four current restudies u Establish time frame to retest assumptions and explore new opportunities u Federal process suggest every 5-years a appropriate frequency for project updating u Consider policy to initiate evaluation at year 5 with completion anticipated on year 10 2.A.2 Packet Pg. 39 Attachment: Density in Context (Presentation) (8137 : Future Land Use/Build Out - Staff Presentation)