BCC Minutes 05/24/2006 W (East of County Road 951 Horizon Study)
May 24, 2006
MINUTES OF THE BOARD OF COUNTY COMMISSIONERS
EAST OF COUNTY ROAD 951 HORIZON STUDY WORKSHOP
Naples, Florida, May 24, 2006
LET IT BE REMEMBERED, that the Collier County Board of County
Commissioners, in and for the County of Collier, having conducted business herein, met
on this date at 9:00 AM in an EAST OF COUNTY ROAD 951 HORIZON STUDY
WORKSHOP in the 3rd Floor Boardroom of the W. Harmon Turner Building in the
Government Complex, East Naples, Florida with the following members present:
CHAIRMAN:
Commissioner Frank Halas
Commissioner Jim Coletta
Commissioner Fred Coyle
Commissioner Torn Henning
Commissioner Donna Fiala (absent)
ALSO PRESENT:
James Mudd, County Manager
Mike Bosi, Principal Planner, Comprehensive Planning
Eugene Calvert, Stormwater Management Dept.
Jim DeLony, Public Utilities Admin.
Norman Feder, Transportation Director
Phil Gramatges, Public Utilities Engineering
Marla Ramsey, Public Services Admin.
Joseph Schmitt, Administrator, CDES
Don Scott, Transportation Dept.
Dave Stedman, EMS
Paul Van Buskirk, Van Buskirk, Ryffel & Associates
Page 1
May 24, 2006 BCC Workshop
East of County Road 951 Horizon Study
1. Introduction
2. Transportation
3. Public Utilities
4. Park and Recreation
5. Schools
6. Stormwater Management
7. Libraries
8. Fire Districts
9. Emergency Medical Services
10. Sheriffs Office
11. Chapter 189 Districts
12. Land Use
13. Public Participation
14. Question & Answers
15. BCC Direction
16. Concluding remarks
May 24, 2006
The meeting was called to order at 9:00 AM with the Pledge of Allegiance by Chairman Frank
Halas.
1. Introduction:
Jim Mudd, Collier County Manager, opened the meeting, noting it is important to look at what
the County is going to look like east of CR 951. The urban area is locked in, but the area east of
CR 951, which is mostly rural, is not. Staff was directed to look at all alternatives for
infrastructure and services east of CR 951, and to come to the BCC for direction. The AUIR
(Annual Update and Inventory Report) indicates one level of service for the entire county which
is urban, and that may not be appropriate for all of the area east of CR 951. Today's presentation
is not a finished proj ect but a work in progress.
Joe Schmitt, Administrator, CDES stated that it is forecasted that 55% to 60% of Collier
County's population will ultimately live east of CR 951.
Mike Bosi, Principal Planner, Comprehensive Planning, who coordinated the study,
described it as a tool to be utilized to help guide decisions on the capital infrastructure and
services to be provided to the study area.
The scope of the study is asfollows:
. To help guide decisions on capital infrastructure and services
. Phase 1 (infrastructure and service providing areas giving potential outlays based on three
different levels of service: status quo, intermediate and premium) and Phase 2 (public
participation - land owners, residents and outside stakeholders)
. Infrastructure: roads, potable water, wastewater, schools
. Services: fire, EMS, law enforcement, libraries, parks
. Horizon 2050 (anticipated build-out year - somewhere between 2030 and 2050)
. Initially not a land use study
Questions to consider:
. Should a land use study be incorporated into the process?
. Level of service options for Phase 2. An urbanized level of service is dictated for a
number of service departments Countywide. Is that type of service appropriate and desired
by the BCC and by the public?
. How and when should the public participation phase begin?
. Should an outside consultant be utilized to facilitate the process?
. Should an Ad Hoc committee of stakeholders (leaders of community associations, leaders
of civic groups, etc.) be formed to direct Phase 2?
Study area:
. Consists of 1,210,618 acres made up of the following six sub-districts:
o Rural fringe mixed use (allows for a mixture of urbanized and rural levels of service)
o Rural land stewardship area (promotes compact rural mixed use developments)
o Golden Gates Estates north ofl-75 (limited land use other than residential, currently
about half built out)
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May 24, 2006
o Immokalee urbanized area (has a history of an urban level of services)
o South Golden Gate Estates (infrastructure demands are extremely low as individual uses
other than conservation are prohibited)
o Naturally resource protected area and federal & state lands (infrastructure demands are
extremely low as individual uses other than conservation are prohibited)
Population from 2005 Build-out Study:
. Currently: 71,000 (22% of Collier County's population)
. Projected: 688,000 (65% of Collier County's population)
Definitions of various levels of Infrastructure Provision:
. Status Quo -little change to current plans
. Intermediate - changes, but not changes to the current Premium level
. Premium - provision of urbanized services to the entire study area
Discussion and questions from the Commissioners followed:
Commissioner Coletta expressed concern that the same conditions that exist in the urban area
and that the land development code is based on are known as a "Premium" plan east of CR 951.
He questioned whether the people coming in to the area east of CR 951 are no longer considered
part of Collier County and entitled to the services that are guaranteed under the present Land
Development Code. He stated that the use of the word "Premium" is offensive - it's not
Premium in the urban area - and the area east of CR 951 does not have a second class of citizens
that don't deserve the same service that they have been paying for in their tax rate as everyone
else. He stated that he would expect the number of libraries, schools and EMS stations east of
CR 951 to be based upon the population, as exists presently in the Land Development Code. The
idea that a condition that might be placed on the citizens east of CR 951 is an M.S.T.U. for these
services as an enhanced service is unacceptable. He also supported the use of a consultant and
the creation of an Ad Hoc committee, which should be called a Master Plan Committee,
consisting of residents throughout the whole area and people connected with the Urban Fringe
and the Rural Land.
Commissioner Henning stated that the area east ofCR 951 will have some urban settings and
some rural settings. He asked if it is being proposed that the level of service in urban areas east
and west of CR 951 will be the same, and the question is what kind of service will be provided to
the rural settings east of CR 951?
Mr. Mudd responded there needs to be some direction from the BCC. Some AUIR criteria are
based on per capita. There are additional requirements based on other criteria, such as an 8 1'2
minute response time for EMS. Locating EMS based on population alone will not be sufficient
in some sparsely populated areas because response time criteria couldn't be met for some of the
residents there.
Commissioner Henning noted that Immoka1ee is an urbanized setting. Is the level of service
question being asked for Immoka1ee as well?
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May 24, 2006
Mr. Mudd answered yes, staffwas asked to layout levels of service for the entire area east of
CR 951 so that nothing is missed and so that there are no false expectations.
Commissioner Henning indicated that, if that's the case, he agrees with Commissioner Coletta
on his concerns. Setting different levels of service for the two urban areas in Collier County
sends the wrong message.
Mr. Schmitt noted that, right now the AUIR is Countywide. Areas like Immokalee will have
urban services. The question is the areas in-between. Due to distances and other reasons, in
areas of less density are we going to be planning for the same level of service? Expectations
need to be defined because along with expectations comes a cost. Are people who move to
DeSoto Boulevard expecting urban services? If the BCC wants to plan for that, there are
significant costs associated with it.
Commissioner Halas stated that as people retire and move down to the area, they are the ones
who are going to determine what level of services they want. People locating here from urban
areas in the north are going to want all of the services provided in the urban area.
Commissioner Coyle noted that there are portions of the land east of CR 951 where the people
have very distinct, different concerns and needs. There are people who will resist having the
rural area in which they live turned into an urbanized area; they are living there because they like
privacy and peace and quiet. The BCC must categorize the area east of CR 951 into rural and
urban areas based upon citizen input. It is conceivable that citizens living in a rural area may
want urbanized services, and there is a substantial cost to that, and M.S.T.U.s might be the only
way to get there.
Commissioner Coletta noted that the people living east of CR 951 have been paying the same
impact fees and taxes as people west of CR 951 to install the infrastructure in the urban area.
What the residents in the east want is another issue, and he'll support whatever that is.
2. Transportation:
Norman Feder, Transportation Director, noted that Transportation only looks at a level of
service Countywide. Usually when an area is considered rural in transportation there is a low
level of volume and it works at a higher level of service that an urban, congested area. In today's
presentation "Status Quo" represents transportation service at current funding levels, and
"Intermediate" and "Premium" are dependent on additional funding.
Don Scott, Transportation Dept., noted that in January a financially feasible transportation
plan was adopted and the County has a "Needs Plan." The assumed build-out year is 2050, and
three spreadsheets delineating three levels of roadways within the Study area were presented as
follows:
. The "Status Quo" level is based on the existing Long Range Transportation Plan and some
of the conceptual roadways that are currently being planned through the assumed build-out
year.
. The "Intermediate" level adds some parallel and new facilities to try to lower the amount
of delay across the transportation system, including better interconnecting roads in Golden
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May 24, 2006
Gate Estates and in the Immokalee area to help alleviate congestion. The projected cost is
$990 million above expected generated revenue.
. The "Premium" level includes additional roadway improvements needed to attempt to
solve level of service problems including overpasses and/or flyovers at high volume
intersections and road connections with new bridges in the Estates. The projected cost is
$1.4 billion above expected generated revenue.
3. Public Utilities:
Jim DeLony, Public Utilities Admin., reviewed an outline ofthe current service area and
boundaries for the County water and sewer utilities. As development occurs the developed
sections will come under the same levels of service as the area west of CR 951. The question on
the table is what if the boundaries of the water and sewer district are extended, and what would
the cost be to do that?
Phil Gramatges, Public Utilities Engineering reviewed a Public Utilities Project map that was
a starting point to try to determine the cost of providing service to the area east of CR 951.
. Levell - Status Quo service is the continued use of septic tanks for wastewater treatment
and individual private wells for potable water.
. Level 2 - Intermediate service involves providing potable water and wastewater
infrastructure. The Utilities study focused on the extension of potable water and
wastewater infrastructure to five square miles (sections) of Estates zoning along the east
side of CR 951 from Vanderbilt Beach Road to one mile south of Golden Gate Parkway.
The estimated costs of these services is as follows:
Potable Water
Sewer
Total
5 Sq Miles
Total Cost
$50,330,000
$95,243,000
$145,573,000
5 Sq Miles
Cost per Parcel
$37,000
$70,000
$107,000
From the cost estimates to provide services to the project area, costs were extrapolated to
provide similar service to an additional seventy-five square foot area. The cost estimates
for the entire eighty square mile area are as follows:
Potable Water
Sewer
Total
Total Cost
$909,360,000
$1,544,720,000
$2,454,080,000
Cost per Parcel
$41,485
$70,471
$111,956
. Level 3 - Premium service would be to provide potable water, wastewater and fire service
to all residents.
Discussion and questions from the Commissioners followed:
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May 24, 2006
Commissioner Coletta asked Dr. Joan Coffer, Director of the Collier Health Department, if
Public Health would be concerned with the use of septic tanks in the Estates at build-out. The
Estates have minimum a minimum lot size of 1.25 acres.
Dr. Coffer responded that septic systems are successfully used in the area now. The dilemma is
that the bottom of the drain field for a septic system has to have a space of two feet between it
and the water table. Many houses in the Estates are built up on fill to provide the necessary
separation. This should continue to work as long as lot sizes in the area remain large. However,
during the rainy season the built up houses become like little islands, and standing water attracts
lots of mosquitoes that need to be controlled.
Mr. DeLony added that there is a concern about maintaining separation of the septic draining
system and potable water from wells.
Commissioner Coletta asked if there have been any problems with contaminated wells in the
Estates.
Ken Recht, Environmental Health Director responded that he is not aware of any
contamination issues in the recent time.
Commissioner Coletta asked Mr. DeLony why we want to get the public upset with the
possibility of considering a cost of $1 07,000 per house to hook up something that they don't
need.
Mr. DeLony responded that he had been asked to provide all options for the BCC to consider
and make a decision on direction.
Commissioner Coletta expressed his concern that $200,000 was spent on the study for water
and sewer. The Commission approved this, but if it had been informed that it would include the
water and sewer study it would not have been approved. Much more detailed information should
have been provided in the request for funding.
Mr. DeLony noted that the results of the study are useful to be able to respond to those residents
who question why some services are not provided where they live.
Mr. Mudd stated that the $200,000 was spent to try to get the east of CR 951 study in front of
the BCC. That money was used appropriately in order to layout the options in front of the
Board. Staffs responsibility is not to preordain solutions; it is to give the BCC all of the
information that it can so that the BCC can make an educated decision. Some things obtained in
the study will be helpful. For example, commercial areas won't be able to run off of septic
systems.
Mr. Schmitt added that $200,000 was not spent on the study; no more than $50,000 was spent to
do the detailed analysis for the expansion of water and sewer.
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May 24, 2006
Commissioner Henning suggested putting a statement in the Utilities Master Plan that the
County shall not provide any services where there are less than four units per acre.
Mr. DeLony responded that there is a process already in place that works. Today's
Water/Sewer Master Plan addresses only service in the proscribed service areas in the maps
presented today. Services are not provided outside of those boundaries.
Break 10:35 AM
Reconvened 10:50 AM
3. Public Utilities (continued):
Jim DeLony, Public Utilities Admin., stated that Solid Waste has already been discussed in
previous BCC meetings. Public Utilities will be back in front of the BCC in November to talk
about the whole solid waste picture. There are no municipal, urban - non-urban levels of service,
although there are two solid waste districts within the County currently with two different service
providers. Thorough discussion of Solid Waste is deferred until November.
4. Parks and Recreation:
Marla Ramsey, Public Services Administrator stated that Parks and Recreation currently has a
level of service that is Countywide and is determined by population. The current standard is
Level 3 - Premium. If a different level of service was to be considered for east of CR 951,
maybe it would be less than the current standard, but that might be complicated by the impact
fees currently being levied and the level of service that the area is currently paying for. The
recommendation is to stay with what we currently have. Placing parks in the area will help with
transportation and make it easier for families to participate in the recreational programs that are
available.
Discussion and questions from the Commissioners followed:
Commissioner Halas asked how many acres are needed to provide Parks using current
Countywide standards when the area is filled out at 688,000 people.
Ms. Ramsey answered that another 1,100 acres of regional land and 640 acres of community
parkland would be needed. Ms. Ramsey added that the Parks and Recreation plan is based on
heavy communication and cooperation with the School system. As School facilities are brought
on, Parks and Recreation looks to share facilities with them.
5. Schools:
Mike Bosi stated that the east of CR 951 area currently has 13 existing schools, and the School
Board has planned 16 new schools by 2025. Based on population demands, a total of72 schools
will be needed by the build-out year of 2050.
. The estimated cost to provide the 43 additional schools expected to be needed after 2025 is
just over $1 billion, excluding land cost.
6. Stormwater Management:
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May 24, 2006
Eugene Calvert, Stormwater Management Dept., discussed drainage and water quality issues
in the area east of CR 951. Stormwater Management is working with the State to develop a
Basin Management Action Plan. Stormwater Management has levels of service defined from A
(excellent), B (adequate), C (standard) through D (unacceptable). The level of service for most
of Golden Gate Estates is "D" - street and yard flooding and some structural flooding. If that
level of service is to be improved, ways to remove or store the water in other places need to be
found. To increase the level of service in the Golden Gate Estates area to "B" would cost in the
area of $200 to $300 million, and improving to an "A" level would cost somewhere in excess of
$300 million.
Discussion and questions from the Commissioners followed:
Commissioner Coletta stated that a Master Plan Review Committee needs to be convened to see
what level of service should be provided. The fact that the majority of canals in the area east of
CR 951 are level "D" is unacceptable. Residents may want to come up with an M.S.T.U. to
share costs with the County. He also expressed concern with discussion about Naples Bay
receiving stormwater, and the costs of alleviating or storing the stormwater. That is not totally
the responsibility of the residents who live in the area that drains into Naples Bay.
7. Libraries:
Marla Ramsey stated that Collier County Public Libraries currently has a level of service that is
Countywide and is determined by population. The current standard is Level 3 - Premium (1.75
books per capita and .33 square feet per capita). Libraries placed closer to individuals' homes
help with transportation and promote higher use of these facilities.
Discussion and questions from the Commissioners followed:
Commissioner Henning asked if the Countywide level of service should be changed, with more
people getting information over the Internet.
Ms. Ramsey responded that there is no reduction in the use of the County's libraries. Some of
the services provided over the Internet are available to residents at the public libraries where they
can get help with better access.
8. Fire Districts:
Mike Bosi stated that there are five Fire Districts within the study area. The biggest issue facing
the independent fire districts is the insurance rating that individual homeowners receive based
upon response times. Fire Control aims for an acceptable insurance Fire Protection Class 5 (the
residence is within five road miles of the fire station). However, in the Golden Gate Estates,
being within five miles of a fire station is not necessarily adequate based upon the limited road
network. For example, some homes may be two miles from a fire station, but inaccessible if
located on the other side of a canal with no bridge crossing. In addition, where units are widely
dispersed, a Class 9 or 10 rating would be assessed to homes, making fire insurance cost
prohibitive or possibly not even available. There is a need to better anticipate future demand to
help determine where and when future locations will be necessary.
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May 24, 2006
Discussion and questions from the Commissioners followed:
Commissioner Coletta stated that water supply for fire, at least down some of the main
thoroughfares, should be a matter of course. The reduced cost of fire insurance might offset the
cost of providing water for fire.
Commissioner Henning stated that the Golden Gate Fire District is asking voters for a millage
increase which will help them on their insurance rating. The outcome of that vote will be the
answer to the question of "what kind of service do I want?"
Don Peterson, Fire Chief, Golden Gate Fire Control and Rescue District, asked for the
opportunity to provide input in help address some of the issues relative to Fire Districts. He
provided the Commissioners with a memorandum detailing his recommendations relative to Fire
Districts in the area east of CR 951.
Commissioner Henning noted that the taxpayers would determine what level of service they
want, and the BCC should not make that decision for them.
9. Emergency Medical Services:
Dave Stedman, EMS, said that EMS is bound by their AUIR which requires a unit for every
15,000 population.
. Two different strategies for placing EMS facilities were presented:
o Level 2 - Intermediate: Co-locating units with other agencies to realize cost savings
o Leve13 - Premium: Placing units without regard to co-location or cost savings, more about
performance
10. Sheriff's Office:
Mike Bosi noted that the current level of service was reviewed without looking at Status Quo,
Intermediate and Premium levels.
. Based on population demands, law enforcement projects the following costs:
Law Enforcement $184,474,839
Correctional Facilities $102,947,624
Total $287,422,463
Revenue generated from impact fees:
Revenue shortfall:
$100,427,232
$186,995,231
These impact fees were based on residential land use and do not take into consideration
impact fees generated by industrial and commercial land uses.
11. Chapter 189 Districts:
Mike Bosi discussed Chapter 189 Districts, noting that the two existing Chapter 189 Districts in
the Rural Land Stewardship Area are the Ave Maria Stewardship Community District and the
Big Cypress Stewardship District. These districts were created to provide public infrastructure
and services within the RSLA and Overlay for the development of anticipated rural villages,
towns and hamlets. Both were created with the express purpose of providing a public financing
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May 24, 2006
mechanism for public infrastructure and services without competing with other County
providers. These Districts are required to be financially neutral or positive to the County.
Coordination with the county's Public Utilities Division, Fire Districts, the Sheriffs Department,
Parks and Recreation Department, Library Department, Fire Districts, and other county
departments, and state and federal agencies will be necessary to avoid duplication of services and
maximize economies of scale of services provided by Collier County.
12. Summary of Estimated Costs:
Mike Bosi reviewed the range of potential outlays for service or infrastructure developed by
departments for the Horizon study (#s are in millions of dollars):
Status Quo Intermediate Premium
Transportation $2,500 $3,490 $3,490
Public Utilities 0 145 2,454
Potable Water 0 50 909
Wastewater 0 95 1,544
Libraries 57 77 99
Schools 1,044 1,044 1,044
Parks & Rec. 101 371 755
EMS 1 81 92
Law Enforcement 184 184 184
Correctional Fac. 102 102 102
Total $3,989 $5,497 $8,672
13. Land Use:
Mike Bosi noted that the Horizon study is based upon existing zoning without looking at any
land use options. Transportation and Utilities have opined that, without a land use study it is
very difficult to provide exact cost estimates. The land use component to the study could
promote enhanced coordination among the County infrastructure providers and the current 189
Districts. It also could allow for a better visualization of presentation during the public
participation stage. As stated by today's speakers, the Sheriffs Office, EMS, the Fire Districts,
Schools and Parks & Recreation all support co-locating facilities for the synergies that exist
among the various departments.
Another question concerns whether there is a need for additional commercial and office space
within the area east ofCR 951. Recently Russ Weyer of Fishkind and Associates completed an
Industrial needs analysis that concluded that an additiona13,685 acres of industrial zoned land
will be needed to satisfy workforce demands by 2030. This has implications towards the
transportation network. Right now the Estates zoning district is sending most of its traffic to the
west, but if there are industrial and commercial opportunities for businesses to locate where
forecasts indicate 688,000 individuals will reside, many businesses will probably chose to locate
closer to this customer base, and will provide job opportunities for people closer to where they
live, positively impacting demands on the transportation network.
Paul Van Buskirk, Van Buskirk, Ryffel & Associates, talked about his firm's Interactive
Growth Model, a population and growth modeling methodology, and gave examples of the use
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May 24, 2006
of the model in Cape Coral and elsewhere. The model projects when certain public facilities
should be provided - including transportation improvements, fire and EMS stations, water and
sewer plants, and where they should be located.
Mr. Mudd stated that staff would like to use this firm to help continue with the planning
process. They provide the opportunity to do "what ifs" that staff couldn't do without their
model.
Mr. Schmitt added that this would come back as a request for contracted services. The model
would become part of Collier County's property and staff would learn to use it. The output of
the model would be displayed in future workshops.
Mr. Mudd indicated that the request, including its cost, would come to the BCC in June or July,
and that he believes there is enough money in the $200,000 allocated for the east of CR 951
study to cover it.
14. Public Participation:
SPEAKERS
Marlaine Rieck of 320 25th Street NW, Naples, said the public should be asked, "Do we
want a crowded County, a crowded way of life, or do we want a quality way of life?" All of
Collier County does not have to become urbanized. If wealthy retirees come to the area and
want urban services, let them go to an urban area. The impact on the environment has to be
considered, we need to maintain habitat. There should be consideration for those who
already live in the area.
Don Peterson, Fire Chief, 4741 Golden Gate Parkway, Golden Gate F.D., asked to be
included in the study process, and indicated that this would help lead to actions that would
save money.
Timothy Nance, P.O. Box 990129, Naples, stated that he lives in Northern Belle Meade.
He noted that the people in the study area are in need of essential services and infrastructure;
however they are willing to sacrifice some services and infrastructure to live in a very
environmentally sensitive area. It is not necessarily a rural area, but kind of a hybrid between
a residential and a rural lifestyle. Words like "Premium Services" should not be applied to
rural and semi-rural areas as something that is necessarily appropriate there. Apply services
that are appropriate, don't just take something that has been good for an urban area.
Amy Taylor, Collier County Schools, asked to be included in the study process. She
stressed the need to co-locate with other service providers and proximate to residential
development.
Brad Cornell, 5S6109th Ave. N, Naples indicated that he was speaking on behalf of the
Collier County Audubon Society. He stated that the County has an obligation to direct
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May 24, 2006
incompatible land use away from sensitive resources and to mitigate for the impacts that do
occur.
15. Questions & Answers:
Joe Schmitt stated that, based on feedback received today, the presentation would be
repackaged. Some policy direction on how the Board wants to proceed is needed, and he asked
Mike Bosi to talk about this.
Mike Bosi stated that there are four real basic questions related to Phase 2:
. Public Participation timing and scope?
. Should a land use study be included?
· Should Public Participation be outsourced? Should an Ad Hoc Committee be created?
. Level of service options for the Estates?
16. BCC Direction:
The BCC gave direction to proceed with the study, and to come back to them with specific
requests concerning the questions stated in item #15.
17. Concluding remarks:
Commissioner Halas thanked staff and everyone else involved for putting the study together
and providing the big picture of what is needed east of CR 951.
*****
There being no further business for the good of the County, the meeting was concluded by order
of the Chair at 12:26 PM.
BOARD OF COUNTY COMMISSIONER'S EAST OF
COUNTY ROAD 951 HORIZON STUDY WORKSHOP
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Chairman, Commissioner Frank Halas
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