Ordinance 004-1979ORDINANCE NO. 4 -1979
AN ORDINANCE RELATING TO MONROE COUNTY, FLORIDA,
ADOPTING THE MONROE COUNTY LAND USE PLAN - 1977
AS REVISED FEBRUARY 1978 AS THE FIRST ELEMENT
OF THE COMPREHENSIVE PLAN FOR MONROE COUNTY,
FLORIDA; PROVIDING LEGAL STATUS OF LAND USE ELE-
MENT; PROVIDING AN EFFECTIVE DATE.
WHEREAS, the Board of County Commissioners of Monroe
County, Florida, in conformity with, and in furtherance of, the
purposes of the "Local Government Comprehensive Planning Act of
1975", Florida Statutes Sections 163.3161-163.3211; and of the
"Florida Environmental Land and Water Management Act of 1972",
Florida. Statutes Chapter 380, have after due consideration and
study with public participation completed the Monroe County Land
Use Plan - 1977 as Revised February, 1978, and
WHEREAS, said Land Use Plan has been duly approved by
the Monroe County Planning and Zoning Department and the Monroe
County Zoning Board acting as the designated local planning agency
pursuant to F.S. 163.3174, said Board having held numerous meetings
with the public toward the end that broad dissemination of the land
use proposals and alternatives and open public discussion be had
and received, and
WHEREAS, said Board having recommended to the Board of
County Commissioners that said plan be approved and adopted by the
County as an element to the Comprehensive Plan for Monroe County,
and
WHEREAS, said Land Use Plan has been approved by the
Division of State Land Planning in accordance with Florida Statutes
Chapter 163, and
WHEREAS, the Board having duly considered the adoption of
said plan at regular meetings held May 2, 1978, May 16, 1978,
May 23, 1978, January 16, 1979, and January 30, 1979, now, there-
fore,
Page 1 of 2 Pages
APPROVED ON I" 30 �
BOOK S PAGE__I_ _ .._.
)40
BE IT ORDAINED BY THE BOARD OF COUNTY COMMISSIONERS OF
MONROE COUNTY, FLORIDA, AS FOLLOWS:
Section 1. That the MONROE COUNTY LAND USE PLAN - 1977,
as Revised February 1978, be and the same is hereby adopted by
reference as the First Element of the COMPREHENSIVE PLAN FOR
MONROE COUNTY, FLORIDA.
Section 2. That said First Element to the Comprehensive
Plan shall be accorded and have the full legal status and effect
as set forth in Florida Statute, Section 163.3194, and particularly,
no land. development regulation, land development code, or amendment
thereto shall be adopted by the Board of County Commissioners of
Monroe County, Florida, until such regulation, code or amendment
thereto has been referred to the local planning agency for review
and recommendation as to the relationship of such proposal to the
adopted element or portion thereof of the Comprehensive Plan.
Section 3. This Ordinance shall take effect upon receipt
of the official acknowledgment from the Department of State
acknolwedging receipt of certified copy of this Ordinance and that
said Ordinance has been filed in said office by the Department
of Administration, Division of State Planning pursuant to the re-
quirements of Florida Statute Section 380.05 and Florida Statute
Chapter 120.
BOARD OF COUNTY COMMISSIONERS OF
MONROE COUN FLO IDA
By
(Seal)
Attest:
C er
1 HEREBY CERTIFY that this document
APPROVED January 30, 1979 has been reviewed for legal suffi-
ciency and that the same meets with
my approval.
BY
Attorney's Office
Page 2 of 2 Pages
J4/
o QD • :i# 4'.1411
mon roe ifa�v
plan
� ll��Ojjl7 7
MONROE COUNTY
LAND USE PLAN
FINAL DRAFT
JUNE, 1977
Revised February, 1978
As Amended January 30, 1979
Prepared By
MILO SMITH & ASSOC.,INC.
AND
MONROE COUNTY PLANNING & ZONING DEPT.
'1` 89�0
7R a
G�`r
Li({ 0, C71.
�� vu11 Coun,
The preparation of this document was financed
in part through a Federal Grant from the -
Department of Housing & Urban Development under
the Urban Planning Assistance Program authorized
by Section 701 of the Housing Act of 1954,
as amended.
MONROE COUNTY
BOARD OF COUNTY COMMISSIONERS
Don Schloesser, Chairman
Richard A. Kerr, Vice Chairman
Gerald Hernandez
Puriegton Howanitz
Jerome Shipley
MONROE COUNTY
PLANNING ADVISORY COMMITTEE
Edward Davidson, Chairman
Roy Anderson
Paul Cates
Ted Carter
Nathaniel Funke
STAFF PARTICIPANTS
MONROE COUNTY PLANNING & ZONING DEPT.
Kermit H. Lewin, Director
Henry F. Weinkam, Senior Planner
Pravin C. Shah, Planner
Dorsey West, Planning Aide
Herman Sweeting, Planning Aide
Lorraine Rogers, Secretarial Assistance
TABLE OF CONTENTS
Section
PAGE
CHAPTER 1
INTRODUCTION AND SUMMARY
1-6
Introduction
1-2
Policy Summary
3-6
CHAPTER 2
LAND USE AND DEVELOPMENT POLICIES
7-28
Scope
7
Land Use and Development Goals
8
Planning Objectives
9-10
Land Use and Development Policies
11-28
A. Growth Management
11-15
B. Environmental Management
16-20
C. Enhancement of the Developed
21-26
Environment
D. Planning and Intergovernmental
27-28
Coordination
CHAPTER 3
LAND USE PLAN MAP
29-40
A. Determinants of Use Distribution
30
1. Physical Characteristics of
30-32
the Land in its Present State
2. Location and Character of
32-33
Existing Development
3. Community Facilities and
33
Services
4. Ownership Patterns
33-34
B. Design Concept
34-36
Lower Keys
35
Middle Keys
36
Upper Keys
36
C. Land Use Categories
37-40
CHAPTER 4
IMPLEMENTATION
41-47
A. Land Use and Development
41-45
Regulations
B. Capital Improvement Program
46
C. Continuing Planning Process
46-47
APPENDIX
BIBLIOGRAPHY
48
CHAPTER I
INTRODUCTION AND SUMMARY
�1
IINTRODUCTION
Decisions affecting land use are made by a myriad of people and
organizations. Among those who actively participate in shaping
the growth and development of an area are bankers, realtors,
developers, speculators, area residents, industries, and a number
of governmental
entities.
Each makes decisions on an individual
basis
without regard
for the
total land use pattern.
'
The purpose of
the Monroe
County Land Use Plan is to rectify that
situation. The
Plan adds
rationality to the land use develop-
ment process by
specifying
how and where Monroe County will grow.
'
The
Land Use Plan,
essentially, represents the
position which
the
County takes with
regard to physical growth
and development.
'
The
Plan provides a
framework by which all decisions
impacting
the
use of land in
the County can be evaluated.
With the adopted
'
Land
Use Plan, there
are specific criteria which
can be considered
by County
officials
and used in making land use
decisions.
The Land Use and Development Policies for Monroe County constitute
the core of the Land Use Plan of Monroe County. The policies
provide a guide for decisionmakers, residents, and all others
involved with land use development in Monroe County. The policy
orientation of the Plan allows it to provide guidance on a long-
term basis so that land use decisions can be reviewed for their
consistency and compatibility.
The policies presented in the following chapter describe postures,
-1-
r
attitudes and anticipated courses of action Monroe County will
assume in dealing with land use and development concerns in
Monroe County. Collectively they outline a general and
comprehensive approach to guide the actions of County govern-
ment toward attainment of its stated land use and development
goals and objectives.
r�
7
7
POLICY SUMMARY
' In order to make the policies more useful to decisionmakers and
County residents, the specific land use policies have been
' summarized below. The policy statements set forth below are
further explained and expanded upon in the Land Use and
Development Policies Chapter.
' A. GROWTH MANAGEMENT
1. All individual land use decisions will be reviewed in the
' context of the general allocation of land uses as set
forth in the Land Use Plan. Conformance with the LUP
shall be the basis for development approval.
' 2. A determination will be required to be made of the impact
of proposed developments on public facilities and services
' of the area. Approval of the proposed developments will
be contingent upon a determination that such facilities
and services will be available in conjunction with the
proposed development.
' 3. The County with the cooperation of other public agencies
will utilize the provision of public facilities and
services as one of its techniques toward influencing the
amount, type, and direction of growth.
3.1 Priority will be given to upgrading the quality and
' dependability of services in the most extensively
developed areas of the County.
' 3.2 Expansion of capability to serve new development
will be provided in designated development centers
in conjunction with plans to upgrade facilities in
those areas.
3.3 Funding of facilities that must be planned to
accommodate demands beyond existing levels will
utilize revenue sources and financing methods which
place an equitable burden for payment on the
beneficiaries of the new development.
4. The County will direct its planning efforts toward protecting
and enhancing employment opportunities in tourism, military,
and ocean related industries.
-3-
'
B. ENVIRONMENTAL MANAGEMENT
'
1. The descriptions and inventory of preservation, con-
servation and development land suitability classifications
presented in the Florida Keys Coastal Zone Management
Study will be used to determine where environmental
'
limitations warrant careful control of the type, scale
and design of development, and will indicate where
development may be most suitably -accommodated from an
'
environmental standpoint. Development design shall
reflect these environmental limitations.
'
2. Proposed developments will be required to conform with
County, State, and Federal policies and regulations
concerning dredge and fill activities.
3. Applicants will be required to submit site alteration
plans for new development for the purpose of determining
the impact of such activity on surrounding waters and
natural vegetation and for determining conformance with
established County standards, criteria and guidelines.
Adverse environmental impacts and non-conformance to
County standards shall be a basis for development
disapproval.
4. The use of PUD and other development clustering techniques
will be encouraged as a means of facilitating effective
use of sites with minimal disruption of sensitive en-
vironmental features.
5. Monroe County or the developer will provide for adequate
wastewater treatment in existing and new development.
5.1. Centralized public treatment facilities will be
developed in urbanized areas as economic feasibility
is evidenced. The plan requires phasing out
of septic tanks and package treatment plants,
with hook-ups to these new treatment plants as
they become available.
5.2 In new residential subdivisions where planned
densities are sufficient to eventually support a
central treatment facility, the use of septic tanks
will be permitted only on an interim basis until
sufficient development has occurred to permit the
installation of the central treatment system by the
developer.
' 5.3 New developments will be required to strictly conform
to County and State design and operating standards
for septic tanks and package treatment plants.
1
C. PROTECTING AND ENHANCING THE URBAN ENVIRONMENT
1. Desirable existing patterns of land use and development
will serve as a basis for determining distribution of
future development. New development in adjacent areas
will be required to form compatible patterns of land use.
1.1 Areas of residential use will be extended to their
logical boundaries to form neighborhoods with
compatible housing types and densities. Provision
of facilities and services will be designed to
improve their stability and upgrade their quality.
1.2 Existing centers of commercial activity will serve
as focal points for location of new commercial
activity. Concentration of commercial development
in these areas will be encouraged, and continuation
of strip commercial development will be discouraged.
1.3 The emerging commercial centers will also function
as focal points to guide location of other activities
and facilities that perform areawide services and
functions. In addition, higher dens-ity ranges
should be located in proximity to these centers on
sites where development would be compatible with
surrounding uses.
1.4 Acquisition of sites and construction of solid waste
disposal facilities wil_1 consider and resolve
potential negative effects upon surrounding develop-
ment. Likewise, proposed developments in the vicinity
of these sites shall be of a type, scale, and design
which will not be incompatible with the operation of
the facility.
1.5 Military installations will be protected from en-
'
croachment of incompatible land uses which would -
place their long-term suitability in jeopardy.
2. Proposed developments in the vicinity of the Overseas
Highway will be required to be of a type, scale, and design
which provides for controlled access in order to maintain
'
effective and safe traffic flows on the Overseas Highway.
2.1 Future subdivisions will be designed so as to eliminate
'
small frontage lots along the Overseas Highway.
2.2 Review by the Florida Department of Transportation
will be required for all proposed developments along
the Overseas Highway. Design recommendations of the
DOT shall be incorporated into the final development
order.
'
-5-
2.3 Highway access adjacent to the ends of bridges will
be strictly controlled.
2.4 Monroe County will initiate studies and programs
designed to upgrade the visual appearance of
development along the Overseas Highway.
3. Dedication of land, or fees in lieu of dedication will be
required in order to meet the recreational and possible
school siting demands of the new developments.
4. Stringent standards will be imposed on the location of
multi -story buildings in order to minimize adverse impacts
on adjacent uses and to ensure that such structures do not
significantly detract from the low visual profile and
character of development in the Keys.
-6-
1
1
1
1
C
11
11
p
I CHAPTER 2
1 LAND USE AND DEVELOPMENT POLICIES
SCOPE
Land Use and Development Policies, serve as a guide for
decisionmakers by officially stating the end conditions and
general parameters for action toward which all governmental
functions influencing future land use and development in the
County should be directed. The highest level of policy is the
goals level, where the conditions the County hopes to achieve
through its involvement in the land use development process
are identified. Policies at lower levels describe the
responsibilities County government will undertake in the
development process as well as the positions and attitudes it
feels it must assume in order to guide land use and development
in a manner that will lead to attainment of the stated goals.
Monroe County can influence the amount, type, and direction of
growth in its jurisdiction through its authority to: 1) regulate
the way the private sector develops and uses land and resources;
2) provide needed facilities and services; and 3) cooperate with
other public entities in behalf of the citizens it represents.
This plan touches on a diverse range of development issues and
concerns of long-term importance that can be influenced and
directed by any of these three approaches. In order to provide
a useable guide for such a broad scope of concerns, the plan does
not attempt to work out the details of possible solutions or
approaches to each development issue. It instead attempts to
outline the general purposes and intents for which such actions
will eventually be undertaken. Specific approaches must be
formulated through a continuing planning program in which various
alternatives are identified and evaluated before selection of the
most effective means of accomplishing the desired ends.
-7-
1
LAND USE AND DEVELOPMENT GOALS
' The authority vested in Monroe Count to regulate and influence
Y 9 f uence
the development and use of land in Monroe County for purposes
' of promoting and protecting the public health, safety and general
welfare shall be directed toward attainment of the following
goals:
' 1. An environment for man that is in harmony with the
area's unique and sensitive natural systems and
features.
2. A development structure and make-up that facilitates
the intelligent use and conservation of resources
' essential to the sustained well=being of the community.
3. A development framework that can offer an attractive
' and safe place to live and visit for persons with varied
individual needs and lifestyles.
4. Systems of facilities and services that can efficiently
' and reliably accommodate the needs of the area's
population.
' 5. A healthy and vigorous economy which can satisfy the
goods and service needs of the area and can offer ample
employment opportunities for the local population.
i6. Preservation of the quality, function, and value of Monroe
County's recreational, scenic and economic resources
of state and national importance.
7. A development framework that provides optimum protection
for both public and private investments in and
commitments to the area.
8. An equitable system for distributing the costs of
attaining the goals for development among those who
would benefit.
-8-
IPLANNING OBJECTIVES
' The formulation and implementation of plans, programs and projects
to be used by Monroe County in attaining the stated Development
Goals will be guided by the following objectives:
1. Maintain growth and development activity at levels within
which demands upon essential resources, facilities and
' services can be met without jeopardizing their quality
or continued availability.
2. Encourage
land use and development patterns
and techniques
'
that make
possible the economical, efficient
and reliable
provision
of facilities and services, and that
can
'
provide an
urban development
effective means of minimizing the
on the natural environment
impacts of
and unique
resources
of the area.
3. Establish planning programs and regulatory controls that
will allow for the accommodation of new growth and
development while ensuring the protection and enhance-
ment of patterns and features that are deemed to be
basic and essential elements of the character typified
by development in Monroe County and desired by its
residents.
4. Guide economic development in Monroe County toward a
condition that will keep pace with the employment,
income and service needs of the community but which is
not reliant upon sustained urban expansion in the area
for its continued well-being.
5. Establish development controls and other governmental
programs that will make possible and will encourage the
provision of adequate housing to meet the needs of all
persons employed in and necessary to the area's economy.
6. Establish programs for the financing of public facilities
and services provided by the County that use funding
resources and techniques designed to facilitate an
equitable sharing of the costs of needed facilities and
services.
7. Integrate planning and administrative functions in county
government in a manner that will facilitate coordination
in formulating, implementing and effectively enforcing
the various programs, projects and ordinances used in
attaining the development goals.
-9-
8. Establish a continuing local planning process that
' encourages citizen involvement and participation in
setting directions for future growth and development
in Monroe County.
' 9. Encourage maximum coordination and cooperation among
all local, state, regional and federal agencies whose
policies and programs affect the nature and extent
of future growth and development in Monroe County.
1
7
1 -10-
-1
LAND USE AND DEVELOPMENT POLICIES
' A. GROWTH MANAGEMENT
Problems and Concerns.
A number of factors and considerations either pose or potentially
pose practical constraints on the ability of Monroe County to
accommodate new growth and development in a manner consistent
with the stated Land Use and Development Goals. Among these are:
Potential for loss or injury to persons and property due
to storms.
The geographic location and land configuration of Monroe
County are such that tropical storms represent an ever-
present threat to the continued safety and security of
residents and property in the area. Under any plan of
development and any standard of construction, the
cumulative amount of loss or injury that could potentially
be inflicted by a storm may be expected to increase with
an increase in the total number of persons and amount of
development in the area.
Availability of water to meet development needs.
The principal source of potable water to serve development
in the Florida Keys is drawn from wellfields on the Florida
mainland. The water is pumped through a large transmission
line that extends the entire length of the island chain.
The vulnerability of the transmission system to damage or
destruction is in itself a concern due to the threat to the
health and safety of the area's population posed by dis
ruption of service.
In recent years, long dry periods accompanied by increased
water usage in the growing southeast Florida region have
placed the overall water supply and replenishment systems
of the area under stress. Until there is a fully en-
forceable regional growth and water use policy that gives
due consideration to the limitations of this water resource,
Monroe County must view with concern the continued avail-
ability and reliability of this source as a means of meeting
its development needs.
New sources and methods revealed through recent studies and
technological advances offer apparent opportunities for
-11-
I
7
developing economical and dependable water supply alternatives
to meet the needs of the Florida Keys. In some cases these
may help to alleviate some of the concern for vulnerability
of the transmission system by offering localized sources of
water. Application of these new techniques and develop-
ment of the needed delivery systems may, however, be
constrained by natural conditions which must be determined
through additional investigations, and by the magnitude of
costs associated with developing and operating such systems
in the Florida Keys —a factor which could necessitate re-
liance on availability of funding assistance from federal or
state sources in order to make alternatives feasible.
Transportation limitations.
' The Overseas Highway is a vital and integral element of
development in the Florida Keys. A substantial deterioration
in the safety and efficiency of this main arterial roadway
' would have a significant negative impact on nearly all
aspects of urban life along the island chain.
The quality of service afforded by this route would be
' affected by use levels that exceeded its designed capacity.
Improvements to expand design capacity are to a great
degree dependent on policies and funding provisions set at
' state and federal levels. Thus, if adequate service is to
be maintained, local growth policies, which can considerably
affect the total use demands imposed on the Overseas Highway,
' must recognize the constraints imposed by policies and
improvement programs established by other levels of
government.
' Environmental limitations.
The desirability of Monroe County as a place to live, work
' and visit is inextricably related to the quality of its
natural environment and resources. The very nature of
these assets is such that their quality and abundance are
' highly vulnerable to the impacts of development. Overall
stress on the natural systems and the potential for
destruction of irreplacable resources will increase as the
amount of development in the area increases.
Growth Management Policies
'
The following policies are established to
guide actions
of the
County that can influence the rate and amount
of growth
that may
occur in Monroe County:
1. Monroe County will maintain a current
Land Use Plan
as an
essential element of an overall growth
management program
for the unincorporated area of Monroe
County. The
plan,
-12-
while providing needed flexibility in the specific location
and distribution of new development, will set forth a general
allocation of land uses and implementation guidelines designed to
accommodate an overall low density scheme of development
reflecting the aforementioned constraints and concerns.
.1 This land use plan will serve as a guide for land use
and development decisions in Monroe County until more
detailed and thorough analyses.of the area's carrying
capacity can be developed. The plan will utilize the
location and carrying capacities of various planned and
economically feasible public facilities as a guide in
determining the general amount and distribution of new
development; assumptions will be made regarding future
growth in incorporatedareas of the County and the demands
it will make on common facilities. The plan will also
reflect consideration for protecting the character of
developed areas and for ensuring protection of important
natural features.
1.2 The County will undertake a comprehensive community
facilities study designed to establish the types and
standards of service to be achieved in the unincorporated
area. Based on these standards and on projected sources
of funding, the County will develop and implement a
public improvement program outlining areas in which
public facilities and services will be provided at
various stages of the planning period. The capacity
of these public facilities will be used to develop
appropriate density allocations and staging in the areas
where service is to be provided. Periodic review and
monitoring of these studies will be provided as a
mechanism for updating the Land Use Plan.
1.3 The County will assist in preparation of a comprehensive
analysis to establish a definitive carrying capacity
for use in land planning in Monroe County when more
information and improved methodologies become available.
The carrying capacity will be determined through
consideration of: limitations posed by all supporting
facilities and services; natural resources and -
environmental constraints; and cultural and psychological
impacts of development on the character and lifestyle
of the area. Findings of this study will permit
additional refinement of the Land Use Plan.
2. Monroe County will require that a determination be made of
the impact of proposed development on public facilities and
services of the area. Approval of developments will be
-13-
I
contingent upon a determination that services and facilities
either available or scheduled to be provided in conjunction
with the development are adequate to meet the projected needs
at standards of performance established by the County.
1
2.1 The County will maintain ordinances and regulations
requiring submission of information describing a
development's impact on public.facilities and providing
procedures for review by appropriate service agencies.
2.2 The County will prepare standards and criteria to be used
in determining the adequacy of public services available
to new development and for establishing additional re-
quirements for services to be provided by the developer
'
before the project can be approved.
3. The County will adhere to and will encourage other public
agencies to adhere to the following guidelines pertaining
to the provision of public facilities and services in Monroe
County:
3.1 Priority will be given to upgrading the quality and
dependability of services in the most extensively developed
areas of the County.
'
3.2 Expansion of capability to serve new development will be
provided in designated development centers in conjunction
with plans to upgrade facilities in those areas.
'
3.3 Funding of facilities that must be planned to accommodate
demands beyond existing levels will utilize revenue
'
sources and financing methods which place an equitable
burden for payment on the beneficiaries of the new
development.
4. In order to attain a state in the local economy that is
consistent with its growth management objectives, Monroe
County will direct its economic planning efforts toward
protecting and enhancing employment opportunities in tourism,
military and ocean resources industries.
4.1 Planning for future development will recognize that
tourism and ocean resource industries, including
sport and commercial fishing, recreational boating,
and skin and scuba diving, provide the principal
economic base of Monroe County. These economic pursuits
should be given high land use priority and other
development should be compatible with these activities.
-14-
4.2 Improved systems of highway, water and air transportation
facilities will be facilitated and encouraged by the
County in order to enhance the area's overall locational
suitability for new good -paying employment activity.
4.3 The County will encourage research and development
programs designed to insure optimum sustainable productivity
in the ocean resources industries and to attract support
industries that provide good employment opportunities and
that enhance the area's ability to compete for new activity
in the ocean resources sector.
4.4 Military installations will be protected from en-
croachment of incompatible land uses which would place
their long-term suitability in jeopardy.
-15-
B. ENVIRONMENTAL MANAGEMENT
Problems and Concerns:
' Protection of the unique and important natural resources and
features of Monroe County, including coral reef communities and
natural stands of mangrove, is essential for the sustained well-being
' of the area's economy and for its desirability as a place to
live and visit. Land use and development can potentially in-
flict serious damage and deterioration of environmental quality
' unless it is properly controlled and directed. Some of the
major concerns for impact on the natural environment are
discussed below.
Dredging and Filling
Improper dredging operations in thepast have inflicted
considerable damage on the area's natural environment.
Sedimentation occurring as a result of dredging operations
has left many of the inshore seagrass areas virtually
unproductive. Several past studies have indicated a
concern that this type of damage may result in a long-
term (if not permanent) loss of a valuable resource, as
these areas serve as breeding, nursery and feeding areas
for many fish and shellfish species.
Concern has also been expressed that the practice of fill
submerged lands and mangrove areas also has done much to
i n g
upset the natural balance of the area's life systems.
Both of these sensitive areas perform important functions
as feeding and spawning grounds for many varieties of marine
life; they are, in fact, critical to the entire natural
food chain of the Keys. The mangrove areas serve additional
functions of equal importance including those of sedimen-
tation control and minimizing erosion and flood damage
caused by storm waves and tidal surges.
Wastewater Treatment
Improper treatment of wastewater generated by urban -
development has been cited as a prominent contributor to
the deterioration of water quality in the Florida Keys.
Widespread use of poorly designed and located septic tanks
in areas where soils do not permit effective percolation
and filtering has been viewed as the greatest single
contributor to this problem. Even when public or private
treatment facilities are in use, however, pollution may
occur as a result of substandard treatment methods,
-16-
1
equipment malfunction, plants operating above design
■ capacity, or collection systems in a poor state of repair.
When inadequately treated effluent enters the area's
waters, the water may take on a murky appearance, and
offensive odors may be evident. In addition to these
■ aesthetically damaging consequences, failure to institute
effective controls in future development could potentially
make the waters unsuited for recreational use or may
■ jeopardize many forms of marine life including the viability
of the unique living coral reef community.
Solid Waste Disposal
Methods traditionally used in Monroe County for disposal of
solid wastes generated by urban land use and development
have contributed to deterioration of the area's environmental
and aesthetic quality. Reliance on open burning at dump
sites has resulted in reduction of air quality to below
state air pollution standards. Inadequate enforcement of
County ordinances requiring solid waste disposal at
authorized sites has resulted in a significant lack of
control over the techniques and methods used for disposing
of wastes. In some instances, dumping into shoreline
waters has occurred and has been cited as a contributor to
the decline in water quality.
Shoreline Development and Site Alteration
Ineffective control of shoreline development and site
alteration has resulted in a deterioration of quality in
surrounding waters and in destruction of natural vegetation
valued for its function in the local ecosystem, for its
ability to lessen storm and flooding hazards, and for its
aesthetic and scenic appeal. Damage is inflicted as a
result of drainage design that permits runoff to carry
significant amounts of sediment and nutrients into adjacent
waters, and through site planning that does not incorporate
protection of natural vegetation as a basic planning factor
■ Environmental Protection Policies
■ The following policies are established to guide growth and
development in Monroe County in a manner that will permit the
effective protection of the area's unique and valuable natural
resources and features and enhancement of the area's overall
■ environmental quality.
1. The descriptions and inventory of preservation, conservation
■ and development land suitability classifications presented in
the Florida Keys Coastal Zone Management Study will be used
-17-
in county planning to determine where environmental limitations
warrant careful control of the type, scale and design of
development, and will indicate where development may be most
suitably accommodated from an environmental standpoint.
1.1 The preservation classification encompasses those portions
of the coastal zone which have overriding ecological,
hydrological, physiographic, historical, or socio-
economic importance to the public at large. Development
in preservation areas will be restricted to the maximum
degree possible within the limits of the County's
authority to guide and regulate land use and development.
When private rights to use of property limit the County's
ability to restrict use in a manner consistent with its
objectives for environmental protection, the County will
encourage use of public funds from local,, state, and
federal resources to acquire areas in immediate jeopardy
of destruction for preservation as permanent open space
or for placement in public uses that are compatible with
their environmentally sensitive nature.
1.2 The conservation classification encompasses those areas
of the coastal zone that are not absolutely critical to
regional ecological integrity (except certain wildlife
refuges), but because of their physical character or
present use provide "buffer zones" for preservation areas
and represent retention of use options for future
generations. Monroe County will strive to restrict the
type and extent of development in conservation areas in
order that they might be retained to permit use options
for future generations. Development which is permitted
to occur in these areas must satisfy stringent standards
and requirements designed to ensure minimal impacts on
important environmental and resource features.
1.3 The development classification includes areas that are
well suited for intensive development and are not
considered to be environmentally fragile. The category
"development" does not inherently imply complete
development of areas so designated; rather, it indicates
that if intensive development is to occur at all, -it
should be directed to these areas. Use of land that is
indicated as suitable for development will be guided
to ensure that development and use does not impose
external negative effects on environmentally sensitive
features in nearby areas.
2. While it is recognized that the exact nature and extent of
environmental damage resulting from wastewater treatment
practices in the Florida Keys has not been conclusively
described, Monroe County will view inadequate wastewater
treatment as a potentially serious threat to the area's
environmental quality. Areawide planning for the treatment
and disposal of liquid waste will therefore adhere to the
following guidelines:
2.1 Centralized public treatment facilities will be
developed in urbanized areas as economic feasibility is
evidenced. The plan requires phasing out of septic tanks
and package treatment plants, with hookups to these new
treatment plants as they become available.
2.2 In new residential subdivisions where planned densities
are sufficient to eventually support an adequately functioning
central treatment facility, use of septic tanks will be
permitted on an interim basis until it is determined that
sufficient development has occurred to permit installation
of the central treatment system by the developer. Posting
of adequate bond, or dedicating land to meet the costs,
plus an inflation factor, of central treatment system should
be required of the developer at the time of plat approval.
2.3 The County will cooperate with the State in developing
and enforcing stringent design and operating standards
for septic tanks and package treatment plants to govern
their use either on an interim basis or where conditions
are found to permit their continued use without posing
a threat to water quality.
2.4 Development in which private central treatment facilities
will be required will be responsible for providing
collection, treatment and disposal methods that meet
design and performance standards established by the
County. New development in areas where public central
treatment is available will be required to provide
collection lines at the developer's expense.
3. Monroe County will establish and implement areawide plans and
programs for the collection and disposal of solid waste in the
Florida Keys. The plan will address the waste disposal needs
on a long-term basis rather than as a solution for immediate
problems.
3.1 Public improvement programs will place high priority on
acquiring or reserving suitable sites for future location_
of local waste processing or disposal facilities to
meet the long-term needs of the waste disposal program.
3.2 County planning for acquisition of sites and construction
of solid waste disposal facilities will take into
consideration the potential negative effects on
surrounding development. Standards and criteria will
also be developed and applied to new development pro-
posed in the vicinity of these sites to ensure against
encroachment by incompatible land use activities.
-19-
3.3 The County will stringently enforce an ordinance
requiring residences and business activities to
utilize collection and waste disposal services
authorized by the County and will impose severe
penalties for violation.
3.4 The County will encourage development of resource
recovery programs as an integral element of the solid
waste disposal program when these prove to be
economically feasible.
4. County land use and development regulations will be designed
and used to complement and support state and federal policies
and regulations concerning dredge and fill activity. The
County will seek approval of properly conducted dredge and
fill for necessary and essential public purposes. The
County will also promote further studies to determine the
manner and conditions in which prohibition of dredge and
fill activity may be replaced in appropriate instances by
regulation of its conduct.
5. The County will require submission of site alteration plans
for new development for purposes of determining the
potential impact of development activity on surrounding
waters and natural vegetation. Standards and criteria to
be used in evaluating impacts will be set forth, and per-
mitted alteration practices will be described. A finding
that proposed development does not conform to established
standards, criteria and guidelines will be a basis for
disapproval of the development.
6. The County will develop a local acquisition program and
will encourage expansion of state, federal and private
programs to acquire land for purposes of environmental
preservation and protection.
7. The County will provide opportunities for use of Planned
Unit Development and other development clustering techniques
as a means of facilitating effective use of sites with
minimal disruption of sensitive environmental features
when public acquisition of these areas is not feasible.
-20-
C. ENHANCEMENT OF THE DEVELOPED ENVIRONMENT
Problems and Concerns:
A major purpose of this plan is to provide a strategy for
accommodating new growth while at the same time protecting
the area's natural environmental quality. The plan will also
ensure that growth will not cause the quality of the present
developed environment to deteriorate or pose a serious threat
to public and private investments. It will instead be directed
in a manner that is compatible with the area's basic development
character and that contributes to the overall enhancement of the
developed environment.
Some of the problems and concerns associated with the present
developed environment are briefly described below.
Excessive Density
Excessive densities have been permitted in some areas of
the Florida Keys and the resultant effect has been the
undesirable emergence of population -congested areas
characterized by use demands that exceed capacities of
public facilities and transportation networks.
Building Height and Bulk
The height and bulk of buildings in the Florida Keys can
potentially be detrimental to the area's overall scenic
quality and character if adequate consideration is not
given to their proper location and design. Buildings of
excessive height or bulk can dominate the natural land-
scape or disrupt important open views.
Incompatible Land Use Relationships
Existing development patterns in Monroe County can generally
be described as random and haphazard characterized by ex-
tensive mixing of incompatible and conflicting land uses.
Continuation of these practices would place today's sound
areas of development in jeopardy of future deterioration.
The absence of adopted and enforced policies and standards
to guide future land use relationships weighs in favor of
the land speculation investor and against persons who have
made a development commitment.
Transportation Efficiencv and Safet
Increased traffic demands, inadequate control of roadside
development, and general physical deterioration of the
-21-
F
1
facility itself have reduced the ability of the Overseas
1 Highway to move traffic efficiently and safely. The
economic well-being, cost of living, and overall
desirability of the urban environment have been considerably
affected.
1 Housing
1 The present housing supply in Monroe County is insufficient
to meet the housing needs of Monroe County residents. Most
of the new construction in recent years has been aimed at
markets outside the county and is priced above the means
1 of many persons employed in the local economy. Thus,
greatest needs are for adequate housing facilities for low
and moderate income families. Costs associated with measures
1 required to satisfy environmental objectives may increase
the governmental effort required to meet this need.
Urban Appearance
The image and appearance of the Florida Keys urban envir-
onment is influenced to a great extent by the visual
experience provided during travel along the Overseas
Highway. Uncoordinated and intermittent development, lack
of even a basic design continuity among structures and
uses, and insufficient signage, landscaping and site
maintenance provisions are evidenced in the present visual
experience. Deterioration of the scenic quality along
this important route diminishes the desirability of the
Florida Keys as a place to live and visit, and, therefore,
has a negative effect on residential land values and the
tourist industry.
Urban Support Costs
Expenditures needed to provide urban support services in
the Florida Keys are typically higher than those needed to
provide a similar level of service in other areas due to
a number of factors - including its geographic location
and configuration, absence of local sources of needed
materials and equipment, the need to protect the area's
environment, and seasonal fluctuations in population size.
A strong feeling exists locally that the area's residents
are bearing an inordinate burden of the costs of facilities
that in part are needed to make the Florida Keys available
to people from other areas.
Policies for Protecting and Enhancing the Urban Environment
The following policies are established to guide future
growth and development in the County in a manner that will
-22-
improve the quality of the urban environment while protecting
the desirable elements of its basic developed character.
1. Desirable existing patterns of land use and development
will serve as a basis for determining distribution of
future development. When sound and stable areas of
development meet appropriate location standards,
compatible new development will be encouraged in adjacent
areas in order to form logical and consistent patterns
of use in the County. An overall purpose and effect of
this policy will be to sustain the overall character
of Monroe County as a low density, leisure -oriented area
of development.
.1 Areas of residential use will be extended to their
logical boundaries to form neighborhoods with
compatible housing types and densities. Provision
of facilities and services will be designed to
improve their stability and upgrade their quality.
1.2 Existing centers of commercial activity will serve
as focal points for location of new commercial
activity. Concentration of commercial development
in these areas will be encouraged, and continuation
of strip commercial development will be discouraged.
1.3 The emerging commercial centers will also function
as focal points to guide location of other
activities and facilities that perform areawide
services and functions. In addition, higher density
ranges should be located in proximity to
these centers on sites where development would
be compatible with surrounding uses.
1.4 Existing and proposed locations for industry -related
' development, waste disposal facilities and airports
will be protected from encroachment of incompatible
uses which would jeopardize their ability to function.
' 2. The County will require review of all proposed develop-
ment to determine potential impacts on facilities,
surrounding uses and environmental and natural resource
' features. Significant adverse impacts will result in
disapproval of the project.
' 3. Stringent standards will be imposed on the location of
multi -story buildings in order to minimize adverse
impacts on adjacent uses and to ensure that structures
do not significantly detract from the low visual profile
1 and character of development in the Keys. Building
height and siting regulations will be designed:
1 -23-
3'.1 to be used as mechanism to facilitate protection
of important environmental features and for securing
permanently maintained open space an an integral
element of the developed community.
3.2 to aid in maintaining views to water from upland
development and the highway;
3.3 to ensure that the height and scale of structures
is integrated into and is complimentary to
surrounding development and the natural landscape;
3.4 to ensure that the height of buildings does not
reduce the fire -fighting effectiveness of available
equipment.
4. Monroe County will initiate studies and programs designed
' to upgrade the visual appearance of development along the
Overseas Highway. Elements of these studies and programs
may include:
' 4.1 Strict enforcement of sign regulations concerning
location, lighting, size, materials, etc.
4.2 Requirements for landscaping of parking areas and
buildings.
' 4.3 Requests for public funds for landscaping and
beautification in urban area right-of-way, and
encouragement of voluntary civic efforts for roadside
beautification.
4.4 Review of proposed construction and building
alteration to promote emergence of basic continuity
of architectural style reflecting character of the
Keys.
4.5 Strict enforcement of anti -litter ordinances and
requirements for maintenance of lots and landscaped
areas.
5. Monroe County will pursue an ambitious policy for con-
trolling access to the Overseas Highway in order to
increase its ability to effectively and safely move
traffic in the Keys.
5.1 The County will cooperate with Florida Department
of Transportation officials in effectuating a program
to correct existing access problems through design
-24-
'
of improvements to U.S. 1 and through development
of alternative traffic circulation patterns where
feasible.
5.2
Local development regulations will discourage
subdivision practices which create small frontage
'
lots along the Overseas Highway. Review by the
State Department of Transportation will be required
for all proposed development of properties along the
'
Overseas Highway.
5.3
Highway access adjacent to ends of bridges will be
strictly controlled.
6. The
County will promote and encourage development of
alternative transportation systems which would alleviate
'
reliance
on the private auto and dependence on the
Overseas Highway as the primary transportation route.
6.1
Public transit systems will be developed in areas
'
where sufficient need is evidenced and where
economic feasibility is shown.
6.2
Public airports will be maintained to facilitate
increased use of air transportation as an alternative
to highway travel.
'
6.3
The County will solicit state and federal grants to
study feasibility of developing water transportation
systems as a travel alternative.
6.4
The need for shore facilities for appropriate water
transportation systems for public use will be given
'
due consideration in land use allocations.
7. The County will guide development of a range of educational,
cultural and recreational facilities and activities
'
offering opportunities to meet a variety of individual
needs of residents living in all areas of the County.
7.1 This policy recognizes that the health and welfare
of residents of Monroe County arereliant upon a
minimum level of opportunities being provided and
'
that developing public facilities to overcome those
deficiencies identified locally should receive
highest priority in facilities funding.
1
7.2 County parks and recreational planning will be
addressed to meeting the needs of the local population.
The County will look to state and federal agencies
to bear an equitable share of costs for development
of facilities to meet the additional demands generated
by visitors.
'
-25-
8. The County will require dedication of land, or fees in lieu
of dedication to meet recreational needs of new development.
Dedication or fees required will be based on standards con-
tained in a recreational element of an adopted Comprehensive
Plan. The need for sites for future school construction
will also be considered, and reservation of sites will be
required when appropriate and consistent with the Compre-
hensive Plan. Such dedications, reservations, or payment
of fees should be accomplished at the time of plat approval.
9. The County will work with the school system toward the
joint planning, financing, acquisition and maintenance of
facilities that may serve both school and countywide
educational, recreational and cultural needs through a more
effective use of buildings and land.
10. The County will use its regulatory and financial resources
to aid in overcoming obstacles to the provision of housing
to meet the needs of low and moderate income residents
employed in the local economy.
10.1 County improvement programs will work toward elimination
of blighting factors and upgrading of facilities in
low and moderate cost housing areas. Substandard
housing will be upgraded or eliminated through housing
code enforcement, rehabilitation and demolition.
10.2 Allocation of areas for medium density residential
development in the land use plan will take into
consideration the opportunities this would provide
for developing moderately priced housing.
10.3 The County will solicit housing assistance funds from
state and federal agencies for use in developing
housing as needed to supplement efforts in the private
housing sector.
10.4 The County will encourage citizen participation in
the development of housing strategies for the County
and for individual neighborhoods.
-26-
D. PLANNING AND INTERGOVERNMENTAL COORDINATION
'
The land use and development policies for Monroe County presented
in this document outline a comprehensive course of action intended
to guide Monroe County government toward attainment of objectives
acceptable to citizens of the County and by means that are also
'
acceptable to the citizenry. Implementation of these policies
will require a continuous process of follow-up planning. In
addition, since this plan has also recognized the concerns and
'
responsibilities of other governmental agencies and their con-
stituencies, effective implementation will require close inter-
governmental cooperation.
'
Policies for Plan Implementation and Intergovernmental Coordination
1. The policies adopted in this document will serve as the
'
official planning policy guide for all County functions
affecting future land use and development in Monroe County.
'
2. Monroe County will maintain and fund a planning staff capable
of effectively developing and administering the planning
_
programs and tools needed to implement the adopted policies.
3. Procedures needed to enable effective administration and
enforcement of County land use and development regulations
will be developed and implemented. The County will also
ensure that an adequate number of competent personnel are
available to administer sound enforcement programs.
4. The Planning and Zoning Department will conduct periodic
review of policy elements and will develop the information
needed to: determine progress made toward achieving
objectives; evaluate effectiveness of individual policies;
identify viable alternatives, and evaluate relevance of the
policies to current conditions.
5. Monroe County will encourage a high degree of citizen in-
volvement in the planning process through:
5.1 Increased dissemination of planning information to the
public;
5.2 Development of a planning and environmental education
program to explain intents and uses of plan elements
and implementation tools;
5.3 Creation of a permanent Advisory Planning Board to
provide citizen input and reaction for use in the
planning_process;
-27-
r
5.4 Appointment of ad hoc citizen task force groups to aid
in developing proposals and soliciting input on specific
' issues for use by the Advisory Planning Committee and
the Planning and Zoning Department.
'
6. Monroe County recognizes that effective implementation of its
adopted policies will require close coordination with local
municipalities, utility agencies and boards, the school board,
Navy officials, etc. The County will therefore work with
'
these groups to establish mutually compatible policies for
the accommodation of growth and development and the expansion
of services.
'
6.1 The County will seek to establish a formal process
through which representatives of all local governments
'
would meet to formulate policies addressing inter -
jurisdictional issues.
6.2 The County will seek official recognition of its land
'
use and development policies as the basis for planning
for the provision of services to unincorporated areas
of Monroe County by other governmental agencies, boards,
'
and authorities.
7. Monroe County will encourage development and adoption of
'
growth policies for the South Florida Region. Used as a basis
for determining appropriate allocations of the area's re-
sources to areas and uses in the region, this plan would
facilitate preparation of carrying capacity studies for use
'
in local land use and development planning.
8. Development guidelines established by the State to ensure
adequate protection of resources of statewide importance are
'
reflected in the Land Use Plan and implementing ordinances.
Consequently, the County will look to the state for financial
and technical assistance in implementing these objectives on
'
a continuing -basis.
9. Monroe County will participate with state and federal agencies
' in enforcing environmental regulations and in protecting
state and federal lands and facilities in Monroe County. The
County will encourage establishment of a clearinghouse
' review procedure locally to facilitate effective review
administration and to avoid conflicts in policy.
u
1 -28-
CHAPTER 3
LAND USE PLAN. MAP
' *This Land Use Plan does not adopt a Land Use Plan Map. This section of
the Land Use Plan is for the purpose of establishing what the Land Use
' Plan Map, when Adopted, is to illustrate.
*LAND USE PLAN MAP
' The Land Use Plan Map, as developed during the Land Use Plan
Update of 1976 and as amended from time to time by the Planning
' and Zoning Department illustrates a general long range develop-
ment concept.
As the County's Land Use Plan is used to guide development
decisions, land use patterns depicted in the Land Use Plan Map
may be expected to emerge.
The plan is general because it must serve as guide for thousands
' of development decisions, each involving distinctly different
circumstances and conditions, to be made in the coming years.
' Using the information compiled for the entire planning area,
the map attempts to anticipate the outcome of each of these
' decisions that might be expected if the stated development
' policies are followed. In
actuality, these decisions must
be made one -by -one based on
a much more explicit level of
information describing the
individual site's conditions, its
surroundings, the nature of
the proposed activity, and the
' availability of facilities
and services it will require.
' The development concept is
long range so that it may better
serve as a guide for future
decisionmaking. Future problems
' and needs often become more
easily recognizable when all of
the development that could
potentially occur incrementally
over an extended period of
time is considered as if it were
' all in existence at once. Once recognized, decisi-ons can be
made which will help to avoid the potential problems or meet
' -29-
future needs not on a parcel -by -parcel basis but rather on an
' areawide basis.
The Land Use Plan Map is not a zoning map. The use categories
' of a Land Use Plan Map deal with land use at a level specifically
' appropriate for areawide transportation, community facilities,
economic, and utilities planning. The zoning process, through
' its consideration of land use on a parcel by parcel basis, is
concerned with the effects of development of one parcel of land
' upon surrounding parcels. The restrictions and requirements of
' a zoning ordinance or similar land development regulation are
not designed to provide the guidance intended for the long range
' comprehensive planning approach.
A. DETERMINANTS OF USE DISTRIBUTION
The following factors were used as primary determinants for the
'
distribution of uses in the Land Use Plan Map:
1. Physical Characteristics of the Land in its Present State
'
The Florida Keys Coastal Zone Management Study included an
inventory of characteristics of the Florida Keys landscape.
'
Based on this inventory, land was classified into three
'
broad categories of use suitability as follows:
Preservation - Portions of the coastal zone exhibiting
'
characteristics are of "overriding ecological, hydrological,
'
physiographic, historical, or socio-economic importance"
to the general public. These areas are deemed to be the
'
least suitable for use because development could potentially
have a detrimental impact on the essential functions and
' -30-
Ivalue of their natural features.
' Conservation - Areas in the coastal zone that are of some-
what lesser importance from a natural ecological standpoint
' but which do serve an important protective function for the
most sensitive areas and/or have significant aesthetic value.
'
Included in this
category are some of the Keys native
'
vegetative communities whose occurrence on the island chain
has diminished as a result of past development.
Development - This category includes areas that are already
developed, have been substantially altered for development,
'
or are not considered to be fragile. Land
environmentally
'
in this category is considered to have the highest suitablity
for use from a natural characteristics standpoint.
'
The category "development" does not inherently imply complete
development of areas so designated; rather, it indicates that
'
if intensive development is to occur at all, it should be
'
directed to these areas.
Although these use suitability classifications were used as
'
a guide for preparation of the Land Use Plan Map, the land
areas identified by these categories are not presented in
'
their entirety in the Land Use Plan Map. This plan recognizes
'
that there are opportunities to develop some parcels in
uses indicated by the other land use determinants without
' significantly degrading the environmental function or value
of sensitive features on the site through adherence to
' shoreline protection and site clearing regulations.
F1
1
-31-
'
Conversely, instances may occur where suitable land as
'
indicated by the site's physical conditon may be isolated by
highly sensitive areas which could be significantly disturbed
if development were to occur. As a general rule, the pre-
dominant condition found in each general area determines the
intensity of development that might be accommodated from a
physical conditions standpoint.
2. Location and Character of Existing Development
'
Existing patterns of land use and development are allowed to
serve as a guide for allocating space for future land uses.
The existing land use survey prepared for the 1974 Land Use
Plan Update served as an information base. This information
was corrected where needed as could be determined through
review of recent aerial photography by the County planning
staff and through spot check field surveys.
Undeveloped parcels in areas having stable existing patterns
of development are assigned uses which would be compatible
with surrounding activities and which would reinforce de-
sirable patterns. Developed commercial areas providing
goods and service needs serve as focal points from which
all new land use activities are distributed. By orienting
most of the new growth to these areas as other factors
permit, the potential for continued strip commercial
development along U.S. 1 is diminished.
The Land Use Plan Map is concerned with patterns of use
rather than the specific use appropriate for each plot of
land. Consequently, the use of existing land use data as
-32-
1
a guide for plan preparation is also concerned with the
' patterns of existing use. In both instances, it is there-
fore possible to have a greater variety of alternative
uses in each use category than is usually possible under
' restrictive regulatory devices of the zoning ordinance.
3. Community Facilities and Services - Existing and Planned
tPublicly operated facilities and services are usually among
the most useful tools available for guiding the distribution
of future growth and development in an area. Foremost
among the effective tools are public programs for provision
of water, sewers, streets, and schools. While each of these
have strong implications for the overall level of growth
and development in the Florida Keys, their use as a means
of distributing growth in a positive manner through the
area has been rendered largely ineffective. Ineffectiveness
can be attributed to lack of a plan and program for long
range provision of services by the County, a condition that
exists because the people cannot agree upon: what services
should be provided; how much capacity; who should pay and
how much should they pay; where should they be located, etc.
4. Ownership
Patterns
'
The Land Use
Plan Map intends
to illustrate a
reasonable use
of land to
every parcel in
private ownership.
Publicly -
owned land
is presumed to
be available for a
variety of
public use
purposes that
would be compatible
with surrounding
area. One
legitimate use
of publicly -owned land
could be
1 -33-
d
'
reservation of environmentally p critical features. It is
'
not known at this time to what extent additional public
acquisition of environmentally sensitive areas will be
'
required, but it is that held for
expected areas presently
'
that purpose will continue to be publicly owned and pro-
tected in future years.
'
Large individual private land holdings often include land
that may fall in several use suitability categories. The
'
Land Use Plan Map, through its general approach to use
'
distribution, does not attempt to describe specifically how
these sites might be developed. Through a planned unit
'
development approach, the uses shown in the Land Use Plan
Map may be concentrated in a portion of a large site while
'
leaving sensitive areas undeveloped or very minimally
'
developed. In areas where land ownership is highly fragmented
due to past subdivision practices this same flexibility does
'
not exist.
' B. DESIGN CONCEPT
The overall strategy for development represented in the Land Use
' Plan Map provides for more intensive uses expected to be re-
quired in future years to occur in areas where the most extensive
urbanization has already occurred. These areas serve as focal_
' points for all future development with new development intensity
gradually declining with distance from the focal centers.
Environmentally sensitive areas are considered for the lowest
practical order of use. The concept for various sectors of
1 -34-
the Florida Keys are described in the following sections.
Lower Keys - Stock Island to Seven Mile Bridge
The Lower Keys division contains large amounts of preservation
or conservation areas as designated in the Coastal Zone Manage-
ment Study. Protection of the functions and features of these
areas will require that the area develop in low intensity
patterns.
New residential development allocated to this area closely follows
the land suitability classifications based on physical condition.
The overall low density patterns are maintained by
keeping densities in the
area at minimal levels.
These patterns should adequately accommodate any future housing
needs that might occur as a result of expansion of the Key West
urban area.
Key West is the primary center for this area although Marathon
influences trade and service patterns in its easternmost portions.
Big Pine Key possesses a developable land area and development
patterns which could permit it to emerge as a secondary center
in the coming years. This occurrence could help to somewhat
lessen trip distances for area residents and could thus aid
efforts to reduce potential levels of through traffic on U.S. 1.
Other new commercial use in this sector should be restricted to
local convenience, highway service and tourist lodging facilities
to be developed in areas that currently exhibit commercial use
patterns.
-35-
Middle Keys - Marathon to Lower Matecumbe
Marathon has emerged as an important urban center in the Florida
Keys. The area contains a substantial amount of commercial
development but also includes a growing resident population
and can absorb some of the more intensive new development in
order to reduce pressures on other areas. Expansion of this
area will require that Grassy Key, minimally developed at
present, be absorbed as a new residential center. In this
process, however, it is important that continuation of the
strip commercial development evidenced in the Marathon area be avoided
because of the detrimental effects it can have on U.S. 1
traffic flow and on the planned residential character of the
area. New commercial needs can adequately be accommodated
through use or reuse of property in the existing developed area.
Upper Keys - Upper Matecumbe to Key Largo
This division exhibits an almost continuous band of developed
or committed to development areas from its southern end to
midway on Key Largo. Further expansion of this pattern should
be avoided. The planning effort here should be directed toward
reinforcing favorable elements of the pattern in a way that would
distinguish the commercial, tourist -oriented, and other in-
tensive use areas from the sound low density residential
communities. Islamorada, Plantation -Tavernier, and Key Largo
Business District in the vicinity of Mile Marker 100 are the
designated development centers. Land availability and location
indicate that Key Largo Business District should emerge as the
principal commercial and service focus for this division.
-36-
C. LAND USE CATEGORIES
Proposed land uses in the Land Use Plan, Map to be presented in
eight use categories.
Protection Use
This category implies that any planned use of the land should
be accomplished with minimum disruption of its natural features.
Land stability was theprimary determinant in locating this use.
It includes publicly -owned or controlled lands that are not
utilized for intensive recreation, including some areas lying in
the wildlife refuges. Major future public acquisitions may also
be expected to come from these areas. Residential usage in
these areas should be limited to no more than one unit per two
acres gross density preferably to be undertaken through a
planned unit development approach which would reduce the need for
creation of a network of streets and utility lines that would
disrupt the local ecosystem. Alternate extremely low intensity
uses might also be developed if due consideration is given to
the relationship between these and the intended character of
the overall area.
Residential Estates:
This
is to
use classification
applied primarily conservation
'
areasand areas that are
outlying from the designated
development
centers. Residential development
here would have an
overall
'
gross density of .5 to
2 dwellings per acre. Once again,
because conservation is
a major purpose of this use
classi-
fication, planned unit
development which would allow
significant
natural features and functions
to remain undisturbed
should be
encouraged.
-37-
l
Residential Low Density
This use classification includes residential developments with
' densities ranging from 2 to 6 dwellings per gross acre. Typical
units at this density include single-family homes, mobile
' homes, duplexes and some townhouse or cluster developments.
' This use is distributed primarily in areas where substantial
development has already occurred at comparable densities. It
is also the predominant residential use in areas where the urban-
ized area is designated for expansion.
Residential Medium Density
This use classification includes development ranging from 6 to
8 units per gross acre. Typical units at this density include
'
multiple family residences and/or townhouse or cluster develop-
ments. This use will occur primarily in those areas already
'
highly developed and in and around the emerging commercial
'
centers. If located in the vicinity of a business district,
this use category may also include tourist residential develop-
ment permitted at a density of no more than 25 units per gross
acre.
'
Commercial Uses
1
Commercial uses include retailing, service and some wholesaling
establishments serving both residents and tourists. Commercial
'
U.S. 1
uses are concentrated along and to the extent possible,
are centered in the areas that already exhibit a significant
pattern of commercial development. Other uses in these areas
1
include Recreational Vehicle Parks District at a maximum density
of 10 spaces per gross acre and Residential Tourist Districts
(Hotels -Motels) at a maximum density of 25 units per gross acre.
' Industrial Uses
Industrial uses shown in the plan include activities typified
' by a manufacturing or processing function. New uses will be
' concentrated in areas that already exhibit an industrial
development pattern.
Public/Semi-Public
This category includes administrative, educational, cultural,
public health and safety, utility, and similar facilities that
' serve primarily a public service function. The plan at present
shows only those currently in existence. Proposed sites should
' be added as community facilities study phases are completed.
Parks and Recreation
The Land Use Plan shows existing active park and recreational
facilities. Proposed sites for new facilities recommended
through an areawide parks and recreation needs study should also
be reflected in the Plan when completed.
-39-
LAND USE CATEGORIES AND CORRESPONDING
EXISTING ZONING CLASSIFICATIONS
(Land Use Districts as shown on the LUP Map
do not necessarily conform with the existing
Zoning Districts)
LAND USE
CORRESPONDING
PERMITTED
CATEGORIES
EXIST. ZONING
MAX. STRUCTURAL DENSITY
L.U.P. MAP
CLASSIFICATION
(ZONING ORDINANCE)
Residential
RU-lE Single Family
1 Unit per 1 net
Estate
Residential Estate
acre
PUD Planned Unit Develop
Residential
RU-1(1M) Single Family
3 to 4.5 units pearcpeoss
Low Density
RU-2 Two-family Units
Mina lot size:
PUD
RU-1 - 8000 sq. ft.
RU-2 - 12,000 sq. ft.
Residential
RU-3 Multi -family Units
RU-3 8 units/gross acre
Medium
Density
RU-4 Townhouses
RU-7 Tourist Residential
RU-4 6 units/gross acre
PUD
RU-7 25 units/gross acre
Min.lot size- 2 acres(RU-7)
Public/
RU-1, RU-lE, RU-2
Semi -Public
and GU
Protection
Use
GU General Use District
Residential Development
permitted not to exceed
1 unit per 1 acre
Industrial
BU-3 Heavy Business
Min. Lot Area
District
1 acre, max. area coverage
50;a
RU-6 Recreation Veh.Pk.
RU-6 10 spaces/gr. acre
Commercial
RU-7 Tourist Residential
RU-7 25 units/gr. acre
BU-1 Light Business
BU-1 Min.lot size:
BU-2 Medium Business
10,000 sq.ft.
BU-2 15,000 sq.ft.
Max.lot(BU-1-2)Cov. 50%
Recreation
RU-1, RU-IE, RU-2 and
Park
GU
The matrix will be revised as the Zoning Ordinance is amended
from time to time.
' -40-
0
0
n
CHAPTER 4
u
IMPLEMENTATION
IMPLEMENTATION
The Land Use Plan is one of the nine required elements of the
Comprehensive Plan mandated by the State Local Government
Comprehensive Planning Act of 1975. The State legislation
also requires that the Comprehensive Plan be adopted by
July 1, 1979, and that this Plan have legal status and that
"no public or private development shall be permitted except in
conformity with Comprehensive Plan(s) or elements or portions
thereof".
The governing body responsible for the adoption of the County
Land Use Plan is the Board of County Commissioners. It is this
governing body which has the responsibility for the overall
implementation of the Plan. The successful implementation of
the policies and principles of this document will be determined
to a great extent by the County's ability to integrate them into
the overall planning effort and into the development regulation
process. The following are the major actions required to fully
implement this Plan:
A. LAND USE AND DEVELOPMENT REGULATIONS
One of the most important aspects of implementation of any
land use plan is the function of processing development orders
whether platting, zoning, issuing of building permits, and
other governmental permitting and regulatory activities. The
exercise of these functions is very crucial in directing
growth and services to reflect policies and principles of
-41-
7
1 the Plan. It is recommended that the County establish a
development review process in order to provide framework
' in which to determine the conformity of the proposed new
development with the Land Use Plan.
At present, the major implementation tools being used in
Monroe County are the Comprehensive Zoning Ordinance, Plat
Filing Ordinance, Shoreline Protection Ordinance, Major
Development Ordinance, Site Clearing & Tree Protection
Ordinance, and Flood Hazard District Ordinance. Of these
the Zoning Ordinance, of course, has been traditionally
accepted as the most effective tool for regulating land
use. To enhance its effectiveness, the Zoning Ordinance
should be considered an evolving document which must be
modified to eliminate problem areas and respond to the
policies and principles of the Land Use Plan.
The use categories of the Land Use Plan Map should provide
guidelines in the process of establishing or re-establishing
various use districts on the Zoning Map. One of the first
steps in this area would be to designate 'Protection Use.'
category incorporating preservation and conservation areas.
Areas designated for protection use in the Land Use
Plan Map reflect these conditions to a large extent
and, therefore, should be used as the basis on which
to form 'Protection Use Zoning District'. Residential
development in this district should be of low intensity
and should preferably be undertaken in a planned -unit
development manner.
-42-
In order to protect environmental features and functions
ofthe areas in the 'Protection Use District', it is necessary
to create buffer zones of compatible development intensity
around Protection Use Districts. This could be accomplished
by creating residential estate or residential low density
districts with appropriate height and setback requirements
in areas in the immediate vicinity of Protection Use Districts.
The planned -unit development should be encouraged as an
alternative to conventional zoning on parcels where protection
of important natural features cannot be achieved effectively
through the conventional lot -by -lot regulation approach.
Densities would correspond to those of the underlying zone,
and design and performance guidelines could ensure that
structures on the parcel are compatible with those in the
surrounding area.
For the purpose of imparting a greater order to commercial
development patterns in Monroe County, various types of
commercial development should be clustered according to
their locational needs. The various commercial districts
of the current zoning ordinance should be thoroughly evaluated
in terms of their ability to implement this concept.
It is possible to group commercial activities according to
their functional needs, both in terms of accessibility re-
quirements and the environment they most effectively operate
in. Zoning classifications should group these permitted
uses based on these needs and the scale of activity, and
-43-
then establish these districts so as to provide sufficient
space for these activities at the most suitable locations
in development areas. Some suggested functional classifications
may include:
Neighborhood or local commercial districts
General community commercial districts
Transient -oriented commercial districts
Office and financial districts
The intent of classifying commercial activities should be to
establish certain types of uses as the predominant activity
in the area. These activities would comprise the list of
permitted uses in each category. Other uses which under
the proper circumstances could contribute to the creation of
sound commercial environments, may be permitted as special
exceptions. The character of existing development should also
be considered when establishing districts.
'Airport District' section of the Zoning Ordinance protects
public airports against encroachment and reduces public
exposure of community activities to hazards associated with
noise and aircraft accident potential arising from the
operations at military airports. The AICUZ study of the NAS
at Boca Chica has been recently approved for implementation
by the Dept. of Navy. Now it is the County's responsibility
to ensure that development of surrounding lands will be
compatible with the noise levels and accident potential
associated with airport operations.
=44-
Also included in the Zoning Ordinance are regulations related
to signs and parking lot landscaping designed to enhance the
aesthetic appearance of the community and to bring order to
visual character of development. Vigorous enforcement and
strict penalties for violation of these ordinances will
enhance prospects of implementing the policies and principles
underlying these regulations.
The Shoreline Protection Ordinance presently in effect
establishes shoreline protection zone and restricts uses
permitted in this zone. Later when sufficient information is
available, this ordinance could be revised to incorporate
provisions for shoreline access and erosion mitigation as
required under the U.S. Coastal Zone Management Act of 1972,
Section 305(b) & (9).
The extensive land use and development regulations currently
being used in Monroe County provide ample scope for implemen-
tation of the Land Use Plan. Continued refinement of these
tools will ensure that the proper considerations of develop-
ment and use as expressed in the Land Use Plan are followed
on a day-to-day basis. When it appears that one of these
tools is ineffective, alternative measures can be devised
without requiring that the Land Use Plan itself be revised.
-45-
B. CAPITAL IMPROVEMENT PROGRAM
' A number of planning programs will be necessary in addition
to the land use and development regulations, to carry out the
intent of the Land Use Plan and to implement the goals and
'
objectives set forth in this document. These programs will
be developed along with the various elements of the Com-
prehensive Plan. Determination of standards, needs and
alternate approaches to meeting needs can be conducted
'
but that
individually for each element, all selected programs
will require long range expenditures should be incorporated
into a capital improvement program. The capital improvement
program would ideally reflect public projects undertaken not
only by county government, but also by other public agencies
'
who raise and expend funds for facilities and services that
'
benefit area residents. The purpose of this approach is to
ensure that the timetable for improving and expending services
'
by all public bodies is closely coordinated.
Fiscal feasibility of the Land Use Plan and the remaining
'
elements of the Comprehensive Plan will be discussed under a
separate chapter of the Comprehensive Plan.
C. CONTINUING PLANNING PROCESS
'
A prerequisite to successful implementation of the Plan is
'
the continual need for public information, coordination and
administration of planning activities locally on a day-to-day
'
basis, and li'ason with state and federal agencies. Periodic
review and updating of the Plan to meet changing circum-
stances in the future and to prevent obsolescence of the
Plan is also a vital part of the implementation program.
' -46-
Community objectives and goals can be expected to change
with time. New and revised land -use concepts, means of
transportation, housing needs and design, public desires
and aspirations, economic, technological and sociological
developments, will require periodic re-evaluation of the
Plan. The planning program must be a continuous and on-
going process; therefore, Land Use Plan must be reviewed
and updated annually.
Once every year the Planning Department will prepare a
report on the Land Use Plan which will be sent to the County
Commission. The report will make an assessment and evaluation
of the success or failure of the Land Use Plan. More
'
specifically, the report will
include statements on the
following: 1) major problems
resulting from
development or
physical deterioration and the
social and
economic effects
of such problems, 2) updating
the Plan's
objectives as
'
compared with actual results,
and 3) the
extent to which
unforeseen problems or opportunities
have
occured since the
date of adoption. The report may also suggest changes in
the plan relating to objectives, policies, and standards.
The County Commission may adopt the report after going
through the adoption procedure for the Land Use Plan.
-47-
I
j
F
I APPENDIX
BIBLIOGRAPHY
In Chronological Order
1970, June
- Milo Smith & Associates, Inc. -
Environment & Identity: A Plan for
Development in the Florida Keys
1974, June
- State of Florida Department of Natural
Resources, Coastal Coordinating Council -
Florida Keys Coastal Zone Management Study
1974
- Howard, Needles, Tammen & Bergendoff -
Monroe County Land Use Plan -Update
1975, November
- Milo Smith & Associates, Inc. -
Land Use and Development Policies
for the Florida Keys adopted by Resolution
No. 165 by the Board of County Commissioners
1975 December
- Monroe County Shoreline Protection Ordinance
No. 17, 1975
1975 December
- Monroe County Site Clearing and Tree
Protection Ordinance No. 18-1975
1975 December
- Monroe County Plat Filing Ordinance
No. 19-1975
1975 December
- Comprehensive Zoning Ordinance of Monroe
County No. 20-1975
1975 December
- Major Development Ordinance of Monroe
County No. 21-1975
1976, October
- Milo Smith & Associates, Inc. -
Monroe County Land Use Plan Update
-48-
q !ql
NOTICE OF REGULATION OF LAND USE
THE BOARD OF COUNTY COMMISSIONERS OF MONROE COUNTY,
FLORIDA., proposes to regulate the use of land within the area
shown on the map in this advertisement by adoption of the
"Monroe. County Land Use Plan - 1977" as revised in February,
1978.
Public hearings on the proposal will be held at 5:30 P.M.
on January 16, 1979, at the County Courthouse Annex, 500 Whitehead
Street, Key West, Florida, and the final public hearing at
5:30 P.M. on January 30, 1979, at the County Sub -Courthouse,
Plantation Key, Monroe County, Florida.
(MAP)
DATED at Key West, Florida, this 7th day of December, A.D.
1978.
RALPH W. WHITE
Clerk of the Circuit Court of
Monroe County, Florida, and
ex officio Clerk of the Board
of County Commissioners of
Monroe County, Florida
(SEAL)
Publish: January 5, 1979; January 22, 1979.
n
' q
t� gale over
PROOF OF PUBLICATION
Zug,
tout%
Published Daily
Key W,ast, Monroe County, Florida
STATE OF FLORIDA)
COUNTY OF MONROE) ss.
4efore th undersigned authors,:-,- personally appeared ...........
Roe rt Lee ohner . • • . , t�ho on oath says that he is ......
�dv'ertisirig Mh7diAbri' '' y
••• of The Key West Citizen, a
daily newspaper published at Key CT,3";. in Monroe County, Florida; that
the attached copy of advertisement, Being a
Notice of regulation of Land Use
in the matter of
Monroe County
Q
was published in said newspaper i. the issues of
Jan. 5t h, 19 79
Affi.an.t further say6i that the said The Key West Citizen is a
newspaper published at K@':y West, in, said Monroe County, Florida,.and
that the said newspaper Fias her6tofore been continuously published
in said Monroe County, Florida, Each day Cexcept Saturdays) and has
been entered. as second class ma... matter at the post office in Key
West, in said Monroe County, Fl•.r.-ida, for a period of one year next
preceeding the first publicatioi of the attached copy of advertise-
ment; and affiant furtl- i` says t',.at he has neither paid nor promised
any person, firm or co_"puratior any discount, rebate, commission or
refund for the purpose of secuzi2g 'this advertisement for publication
in the said newspaper.
CITARY
State of Floi da ,!t Large' l
m,,'ies J IIIJJJ
��,; ro�i�;.. �:, T-.f
Urc'ervni`ers
Sworn to and subscribed be`ore me th's .15PA ••••.••.•••••••,.
day of ...... ...... .,. , A.D. 197 ,
OTICE OF REGULATI1.0 OF LAND,.USE
THE BOARD OF COUNTY COMMISSIONERS -OF MONROE COUNTY, FLORI.I)
proposes to regulate the•use of land within,the area shown on the,map in this
advertisement by adoption of the "Monroe ,County Land Use Plan - 1977" as
revised in February, 1978.
Public hearings;on the proposal will be held 'dt 5.:30 P.M. on January 16,
1979, at the. County '.Courthouse Annex, 500:.Whitehead Street, Key West,
Florida, .and the final- public hearing at 5:30,P.M..on'January 30, 1979', at the
.County Sub -Courthouse, Plantation Key, Monroe County,, Florida.
•
..
.. Rp1 . ,.
OO
..
WAlCHWAY
FLORIDA BAY
'
.VyRACGASrAL R- •- iNy�xLf
11.950.
a
COA/BA
B4Y
•
1.
'
..
L
F •• ,`� '�... i
�
1•—+---9--__.-..���.
— _ _ —_ ,1
__
r5_
_ —._
_ _ WAY
.I s ( r
STRAITS
-STRAITS OF
FLORIDA
1
DATED at Key West, Florida, .this 7th day. of December, A. D, 1978:.
+ January 5, 22,` 1979
I
RALPH W. WHITE '
Clerk. of the Circuit Court of
Monroe County, Florida, and
ex officio Clerk of the Board
of County Commissioners of .
Monroe County,,, Florida
o, tns spr
w
s
J — i
�ooe.
GEORGE FIRESTONE
SECRETARY OF STATE
February 8, 1979
'�§PCrCtarR of 'i5"tcltk
STATE-0F FLORIDA
THE CAPITOL
TALLAHASSEE 32304
Honorable Ralph W. White
Clerk of Circuit Court
Monroe County
500 Whitehead Street
Key West, Florida 33040
Attn: Virginia Pinder, Deputy Clerk
Dear Mr, White:
BETTY CASTOR
Director, Division of Elxtions
904/488-7690
Pursuant to the provisions of Section 125.66, Florida
Statutes, this will acknowledge:
'l. Receipt of your letter/s of February 5 & 6th
and certified copy/ies of Monroe
County Ordinance/s No./s 79-4 an - mergency,
We have filed this/these Ordinance/s in this office
February 8, 1979
3. Receipt of an original/s and certified copy/ies of
County Ordinance/s No./s
4. Receipt of County Ordinance/s
relative to
:i. We have numbered this/these Ordinance/s
and was/were filed
in this office 1979.
6. The original/duplicate copy/ies showing filing date
is/are being returned for your records.
Cordially,
,
G
(Mrs.) NKavalh
Chief, u
of Laws'-
NK/ mb
!