Monroe County Comprehensive Plan Evaluation & Appraisal ReportMONROE COUNTY COMPREHENSIVE PLAN UPI
-1255
Monroe County
Comprehensive Plan
Evaluation and Appraisal Report
Monroe County 2010 Comprehensive Plan
Evaluation and Appraisal Report
TABLE OF CONTENTS
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CHAPTER 1: POPULATION TRENDS AND PROJECTIONS.....................................................................0
CHAPTER 2: L AND USE INVENTORY............................................................................................. 0
CHAPTER 3: ASSESSMENT OF COMPREHENSIVE PLAN ELEMENTS ......................................... 0
CHAPTER 4: MAJOR ISSUES ANALYSES ......................
CHAPTER 5: SPECIAL TOPICS.........................................................
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CHAPTER 6: ASSESSMENT OF CHANGES TO FLORIDA STATUTES, ADMINISTRATIVE
RULES, STATE AND REGIONAL PLANS........................................................................................... 0
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i Evaluation and Appraisal Report
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Monroe County 2010 Comprehensive Plan
Evaluation and Appraisal Report
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APPENDIX 1 - ELEMENT ASSESSMENT MATRIX
ii Evaluation and Appraisal Report
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CHAPTER 3: ASSESSMENT OF COMPREHENSIVE PLAN ELEMENTS
[163.3191(2) (h) F.S.]
Introduction
The State of Florida requires all local governments (counties and municipalities) to
adopt Local Government Comprehensive Plans that guide future growth and
development. Such plans have been required since the adoption in 1985 of Florida's
Local Government Comprehensive Planning and Land Development Regulation Act,
also called the Growth Management Act (Chapter 163, Part I1, F.S.).
Subsequent to its adoption in 1993, the Monroe County 2010 Comprehensive Plan
(the Plan) was challenged and amended pursuant to Rule 9J-14.022, F.A.C. and Rule
28-20.100. The final Plan was adopted in 1995. The Growth Management Division
is the administrative entity that implements the goals, objectives and policies as set
forth in the Plan.
The statutory mandates for the County's Comprehensive Plan extend beyond that
established in Chapter 163 F.S., and administered through Rule 9J-5 F.A.C, including
the following provisions:
• As an Area of Critical State Concern, any local comprehensive plan enacted,
amended or rescinded by the County is effective only after review of the
proposed plan, amendment or recession by the Department of Community
Affairs (DCA) to determine whether the proposed plan, amendment or recession
is in compliance with the "Principles for Guiding Development" found in Chapter
380, F.S.
• After the Plan was challenged in 1995, subsequent legal proceedings prompted a
Final Order and Recommendations by the Administration Commission. The
effect of the Final Order was that 95 percent of the Plan became effective but the
disputed provisions required further action. Rule 28-20.100 F.A.C. established
the "Five Year Work Program" (the "Program"), which was expanded to 10 years.
The Program outlines the actions the County must achieve every year and
identifies the various agencies involved.
Due to these actions, development and growth in the Keys are governed by a unique
set of rules, laws and principles for planning.
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Assessment of Existing Plan Elements
The following assessment of successes and shortcomings reviews the
implementation status of the 15 elements currently included within the existing
2010 Plan. The assessment focuses on the County's efforts since the 2004
Evaluation and Appraisal Report (EAR).
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3.1 Future Land Use Element
Overview
The primary purpose of the Future Land Use Element (FLUE) is to provide for an
effective and efficient balance of the County's anticipated growth demands with its
goals for hurricane evacuation, economic development, maintaining community
character and protecting its natural resources. It is one of the most important
elements as it lays the foundation upon which the rest of the Comprehensive Plan is
built.
This element consists of five goals, addressed through 41 objectives and 106 policy
statements. The objectives and policies within the FLUE facilitate its goals through
provisions for growth management; concurrency; natural resource protection;
hurricane evacuation; redevelopment; nonconformities; historic resources; land use
categories, including airport and military facilities; and availability of land for
affordable housing and public school facilities.
The FLUE designates the proposed future general distribution, location and extent
of the uses of land and includes standards for the densities and intensities of each
land use category. The element contains both a series of maps depicting the Existing
and Future Land Use pattern and a section of Goals, Objectives and Policies.
The following are the major achievements, successes, shortcomings and
recommendations for the element:
Successes, Shortcomings and Recommendations
Overall, since the last EAR (2004), the County has successfully implemented the
FLUE goals, objectives, and policies (GOPs) of the Plan, which were designed to
accommodate the County's limited growth without jeopardizing its natural or
cultural resources or compromising the community's safety or quality of life.
• The FLUE GOPs (Objective 101.1 and associated policies) have been successful in
promoting orderly and economical development through its Concurrency
Management System by ensuring that public facilities and services, including
roads, sanitary sewer, solid waste, drainage, potable water, parks and recreation
and schools be available concurrent with the impacts of development as required
by Rule 9J-5, F.A.C.
• The FLUE includes Objective 101.2 and associated policies relating to reducing
hurricane evacuation clearance time to 24 hours by 2010. The majority of these
policies have been successfully implemented, including revisions to the Permit
Allocation System for residential development, and participating in efforts to
monitor and reduce hurricane evacuation clearance times; and efforts to
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evaluate hurricane evacuation models. To comply with the requirements
outlined in Rule 28-20.110, F.A.C. and to comport with Objective 101.2 in the
Plan, in 2010, the Florida Keys Hurricane Evacuation Study "The Miller Model"
was updated to include phased evacuation; the Florida Department of
Transportation's 5-Year Work Program roadway projects; and updated
participation rate and traffic flow rate assumptions to determine projected
clearance time results.
• Policy 101.2.6 prohibits new transient residential units. This moratorium is
periodically reviewed and extended. This Policy should be evaluated and
amended, as appropriate, to address transient residential units.
• The Work Program currently included in the existing FLUE Policy 101.2.13
includes tasks and activities through Year Ten (July 12, 2007). The County has
successfully implemented the majority of the tasks included in the original Work
Program.
— Remaining tasks include completion of the Tier Overlay mapping and specific
actions related to hurricane evacuation, land acquisition, wastewater
treatment and disposal, and stormwater improvements. Monroe County
addressed habitat protection with the implementation of the Tier
Designation Review Committee and subsequent review and
recommendations for parcels previously challenged in an administrative
proceeding. Wastewater facilities have been delayed due to funding
shortfalls. Senate Bill 550 extended the deadline from 2010 to 2015 for the
upgrade of wastewater treatment facilities to advanced treatment standards
in the Florida Keys.
— Policy 101.2.13 should be updated as appropriate to reflect revisions to Rule
28-20, F.A.C., and the successful implementation and completion of the tasks
outlined and to include additional or revised tasks or activities as may be
necessary, such as those outlined in the Monroe County 30-Day Report, 2010,
issued by the Administration Commission, including recent statutory
deadlines for wastewater improvements.
— There are approximately 3,093 parcels without a Tier designation; these
parcels are currently being reviewed by the Board of County Commissioners.
The future land use and tier maps will need to be reviewed and amended as
appropriate to reflect the results of the County's review.
— Additionally, the County should review and amend, as necessary, the clearing
limits established in Policy 101.4.22 for the Tier designations to further
protect native upland habitat.
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— An analysis of the resulting Tier mapping indicates that a substantial amount
of vacant land in Tier 1 has a Mixed Use land use designation. The County
should review the land use designations for these parcels.
• Objective 101.4 and the associated polices establish the Future Land Use Map
categories and the density and intensity standards for each category. These
policies should be evaluated to determine if: 1) the existing density and intensity
standards recognize and encourage the unique development/redevelopment
patterns within the County; 2) if the floor area ratio maximums promote
compatibility in each of the Future Land Use categories; and 3) if the density
standards under maximum net density should be modified or eliminated.
Additionally, the County should review and clarify the uses allowed under the
Conservation category and establish a Commercial category.
• The FLUE contains several GOPs related to maintaining and enhancing water
quality (Objective 101.9 and 102.5). To implement these policies, Monroe
County adopted Sanitary Wastewater and Stormwater Master Plans and
expended limited financial resources to address existing wastewater and
stormwater issues. Additionally, Monroe County assigns positive points for
proposed developments that will be connected to a central wastewater system
to direct growth to areas with sewers. Water quality improvements continue to
remain a top priority for the County. The County has adopted a Stormwater
Management Ordinance and prepared a Manual of Stormwater Management
Practices which provides information on acceptable forms of Best Management
Practices (BMPs), e.g. rate control structures, catch basins with skimmers and
baffles, and wet and dry detention/retention facilities. The County continues to
address wastewater issues.
— Although originally planned to provide compliance by July of 2010, the
Monroe County Sanitary Wastewater Master Plan (the "Master Plan") has
fallen short mainly due to a gap in funding. Although many tasks identified in
the Master Plan remain incomplete, all are being addressed. The remaining
tasks consist mainly of costly capital improvement projects for which funding
remains the key issue to implementation.
• Policy 101.3.1 requires the maintenance of a balance between residential and
non-residential growth by limiting the square footage of non-residential
development to maintain a ratio of approximately 239 square feet of new non-
residential development for each new residential unit permitted through the
Residential Permit Allocation System. This ratio may be modified from time to
time through amendments to the land development regulations based upon
market and other relevant studies as required by policy 101.3.5. Further, Policy
101.3.5 requires the County to conduct a market demand analysis and economic
assessment to determine the demand for future non-residential development in
the County. As part of the 2010-2030 update of the Technical Document, an
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economic assessment will be completed; however, a market demand analysis
component has not been scheduled.
— Monroe County should review historical non-residential growth and demand
trends and the results of the economic assessment to determine if revisions
to Policy 101.3.1 and Policy 101.5.5 are necessary to allow the expansion and
growth of existing businesses.
— Additionally, the County should make the appropriate amendments to
strengthen economic development strategies to support a balanced,
diversified, and robust economy.
• Policy 101.5.8 states that Monroe County may develop a program, called
Transfer of ROGO Exemption (TRE) that would allow for the transfer off -site of
units to another site in the same ROGO sub -area. The County should revise this
policy to establish meaningful and predictable criteria for issuing ROGO
exemptions and to provide guidelines for the content of land development
regulations. Additionally, a policy should be created to allow the transfer of
ROGO allocations or exemptions from Tier I, II, and III -A to Tier III.
• Policy 101.13.5 requires that the County map potential Transferable
Development Rights (TDRs) sender and receiver sites and map parcels from
which development rights have been transferred. While the County has maps of
the various habitat types identified as "sender sites" in Policy 101.13.4, the
County maps currently do not track the movement of TDRs. The County should
review this policy and determine the most appropriate way to track the transfer
of TDRs.
— The County will determine if policies need to be revised to provide further
detail and guidance for the development of implementing land development
regulations.
• The FLUE directs the development of comprehensive land acquisition program
(Objective 101.6 and 102.4.1) and smart growth initiatives (Goal 105) in
conjunction with its Livable CommuniKeys Program (Objective 101.20) to
protect natural habitat and facilitate balanced and sustainable development.
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These GOPs have been successfully implemented through:
— The development and implementation of the Tier System and revisions to the
Permit Allocation System. In 2006, the County adopted a Tier System to
direct growth to acceptable areas and encouraging conservation in areas
with environmental sensitivity. The tier boundaries are depicted on the Tier
Overlay District Map.
1) To further implement smart growth initiatives, Goal 105 and related
rate of growth policies (101.5.4) should be evaluated to determine how
to establish scoring criteria for wetlands.
2) Tier criteria in Policy 105.2.1 should be revised and additional
categories should be established to address military lands (Tier
military) and right-of-ways (Tier 0).
— A Land Acquisition and Management Master Plan was developed in August of
2006. The plan includes a detailed funding plan, identifying both current and
future funding sources and an implementation strategy for acquisition. The
plan also discusses the land needs associated with affordable housing
development and identifies potential funding for the program.
— Adopting Policy 101.6.6 requiring that administrative relief, in the form of
the issuance a of building permit, is not allowed for lands with the Florida
Forever targeted acquisition or Tier 1 lands unless certain conditions are
met.
1) The County should develop criteria for administrative relief
determinations for Tier III -A parcels that are served by central
wastewater systems.
— The adoption of Livable CommuniKeys Plans (LCP) for Key Largo, Stock
Island/Key Haven, Big Pine Key/No Name Key and Tavernier.
1) The County should continue the completion of the Lower Keys LCP and
Duck Key/Conch Key LCP.
• Objective 101.7 and 101.8 direct the preparation of redevelopment standards
and Land Development Regulations (LDRs) amendments to address the large
number of non -conforming commercial structures that are non -compliant as to
on -site parking, shoreline setbacks, stormwater management, landscaping, and
buffers; and provide incentives for redevelopment and permit the continuance of
businesses while moving towards an integrated streetscape. The current
Comprehensive Plan recognizes the large number of non -conforming
commercial structures and through implementation of Policy 105.1.4 and the
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implementing LDRs the County has reduced the number of existing
nonconformities.
• Objective 101.7 requires the County to "...evaluate potential redevelopment
areas and prepare redevelopment plans for areas determined to be in need of
redevelopment." Pursuant to Objective 101.20 and its associated policies, each of
the Livable CommuniKeys Plans provides a framework for future development
and redevelopment, an assessment related to the physical and socio-economic
conditions, identifies implementation strategies, capital improvement needs and
site and building guidelines within the areas served by each of the LCPs. Each of
these plans consistently encourages redevelopment over new development.
— While the Plan does not directly incentivize redevelopment, the County's
growth limitations and the ROGO and NROGO processes, could in theory, act
as a catalyst, for redevelopment, providing that planning objectives and
strategies, such as those outlined within the Livable CommuniKeys Plans, are
better articulated, supported and incentivized within the Comprehensive
Plan.
• The FLUE policies are structured to direct development away from the County's
natural resources (Objective 101.11 and Goal 102) and areas within high risk
special flood hazard zones (Objective 101.14), while preserving property rights.
The County continues to implement these policies through on -going
coordination with the Federal and State's oversight agencies including: the
Federal Emergency Management Agency, Department of Community Affairs,
Department of Environmental Protection, the Florida Fish and Wildlife
Conservation Commission, the Florida Park Service, the South Florida Water
Management District and the U.S. Army Corps of Engineers.
— Pursuant to Goal 102 of the Plan, the Habitat Conservation Plan (HCP) for Big
Pine Key and No Name Key was implemented in 2006 to protect the Florida
Key deer as well as other protected species, including the Lower Keys marsh
rabbit and the eastern indigo snake. The HCP outlines the planned growth
patterns and rate as well as the anticipated impact that growth will have on
the species.
• The FLUE has protected the community's desired character by restricting
building height, administering the existing Sign Ordinance, encouraging compact
development, limiting new development and redevelopment to uses that are
compatible with the future land use designations, and providing consideration to
the compatibility with the surrounding area (Policies 101.4.24, 101.5 and
101.15.1).
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• As required by Objective 101.17, the County has established and maintains a
Geographic Information System.
— Policy 101.17.4 requires that the Growth Management Division coordinate
with the Property Appraisers' Office to ensure existing land uses and density
and intensities of use are accurately depicted in their GIS. In 2010, the
County developed a GIS data set for an Existing Land Use Map series, utilizing
the Property Appraisers GIS data, in particular the Property Classification (PC)
codes, to assign a generalized land use designation. There are certain
limitations and discrepancies in utilizing Property Appraisers GIS data. County
staff continues to refine the data and resolve, to the greatest extent practical,
the differences between data sets.
• The FLUE contains Goal 104 and associated objectives and policies related to the
preservation and protection of the historic districts. The County has over 600
sites and structures that have been designated locally or nationally historically
significant. The policies have been successfully implemented.
• The element includes outdated or no longer applicable objectives and policies;
these are identified in the attached Appendix 1 and should be reviewed closely
and revised or deleted accordingly.
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3.2 Conservation and Coastal Management
Overview
The purpose of the Conservation and Coastal Management Element (Rule 9J-5.012 &
Rule 9J-5.013, F.A.C.) is to promote the conservation, use, and protection of natural
resources and to plan for, and where appropriate, restrict development activities
where such activities would damage or destroy coastal resources and threatened
and endangered species habitat; and protect human life and limit public
expenditures in areas that are subject to destruction by natural disaster.
The following are the major achievements, successes, shortcomings and
recommendations for the element:
Successes, Shortcomings and Recommendations
Overall, since the last EAR (2004), the County has successfully implemented the
Conservation and Coastal Management Element goals, objectives, and policies
(GOPs) of the Plan. The protection of the environment has been the focus of much of
the land use planning effort since the adoption of the existing Plan.
• Goal 202 directs Monroe County to maintain and enhance nearshore water
quality and the associated marine resources (Goal 202). To implement these
policies, Monroe County adopted Sanitary Wastewater and Stormwater Master
Plans and utilized the County's limited financial resources to address existing
wastewater and stormwater issues. The County participates in the Water
Quality Protection Program and continues to coordinate with the state and
federal agencies, and nonprofit organizations on the health and integrity of
environmentally sensitive lands and marine resources.
— The County should review and revise, as appropriate, the existing
stormwater regulations to further reduce pollutant discharges into ground
and surface waters from stormwater runoff.
• The GOPs direct Monroe County to address liveaboards (Objective 202.4),
marina siting (Objective 202.5), boating impacts management (Objective 202.7),
and the protection of marine resources. The County prepared reports in 2001
(Project Proposal for a Keys -Wide Mooring Field System) and 2002 (Keys -Wide
Mooring Field System Preliminary Planning Document) which addressed impacts
associated with liveaboard anchorages and made recommendations for the
siting of mooring fields. The County codified regulations for the establishment
and management of mooring fields, and created its first liveaboard mooring field
in Boot Key Harbor. The County has codified a prohibition on mooring or
docking of 'liveaboard vessels' in manmade canals and basins. The County
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created several no discharge zones which in 2002 were encompassed by the
federal No Discharge Zone that included all state waters of the Florida Keys
National Marine Sanctuary (Sanctuary). In 2010 that zone was expanded to
include all the waters, both state and federal of the Sanctuary. In 2007, the
County completed the Monroe County Marina Siting Plan; however, it received
objections from DCA, and has not been adopted by the BOCC. Additionally, the
County continues to maintain a system of aids to navigation and boating
regulatory zones and disposes of derelict and abandoned vessels in coordination
with the Florida Fish and Wildlife Conservation Commission.
- The County should revise and update the Monroe County Marina Siting Plan
for adoption into the Comprehensive Plan.
• Policy 202.11.1 requires the County to coordinate a, "...review of application
guidelines for aerial pesticide spraying and alternatives to aerial applications of
pesticide." The final report, "Aerial and Tidal Transport of Mosquito Control
Pesticides into the Florida Keys National Marine Sanctuary" (Pierce, et al) was
issued in 2005.
• Goal 204 and associated objectives and policies direct Monroe County to protect
and enhance marine and freshwater wetlands. Policy 204.1.1 requires the
County to "...participate in the Florida Keys Advance Identification of Wetlands
(ADID) Program." The ADID program was a joint effort of the USEPA, USACE, and
the County, utilizing federal wetland delineation methods. The Florida Keys
ADID project included mapping of marine and freshwater wetlands throughout
the Keys. The ADID project mapped approximately 65,000 acres of marine and
freshwater wetlands and conducted a functional evaluation of these wetlands.
The map series produced for the ADID program were produced on hand -drawn
maps that were then digitized. The ADID project included the development of a
functional assessment methodology called the Keys Wetland Evaluation
Procedure (KEYWEP). In conjunction with the ADID, the assessment team
scored many wetlands throughout the County using the KEYWEP. For wetland
regulatory purposes, the County utilizes scores assigned during the ADID
through KEYWEP to determine the appropriate level of protection or suitability
for development of wetlands. The Florida Department of Environmental
Protection and the water management districts utilize the Uniform Mitigation
Assessment Method (UMAM - see 373.414(18), F.S. and Rule 62-345, F.A.C.) for
wetland regulatory purposes. UMAM is a standardized procedure for assessing
the functions provided by wetlands and other surface waters, the amount that
those functions are reduced by a proposed impact, and the amount of mitigation
necessary to offset that loss.
- While the ADID mapping was completed, the process did not involve the
State of Florida wetland delineation method (373.421, F.S.). The County
should evaluate the state methodology and coordinate with state and federal
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agencies to ensure the County is making determinations that are consistent
with Chapter 373, Florida Statutes. The County should review and compare
both the KEYWEP and UMAM procedures to determine if revisions are
necessary for the County and ensure consistency with Chapter 373, State
Statute.
• Goal 205 directs Monroe County to protect and enhance native upland
vegetation and protect and conserve existing wildlife and wildlife habitats.
These GOPs have been successfully implemented through:
— The development and implementation of the Tier System (Policy 205.1.1)
and revisions to the Permit Allocation System. In 2006, the County adopted a
Tier System to direct growth to acceptable areas and encouraging
conservation in areas with environmental sensitivity. The tier boundaries
are depicted on the Tier Overlay District Map.
1) To further protect native upland habitat the County should review and
amend, as necessary, the clearing limits for the Tier designations (Policies
205.2.6 and 101.4.22).
2) Tier criteria in Policy 205.1.1 should be revised and additional categories
should be established to address military lands (Tier military) and right-
of-ways (Tier 0).
— The development of a Land Acquisition and Management Master Plan in
August of 2006. The plan includes a detailed funding plan, identifying both
current and future funding sources and an implementation strategy for
acquisition. The plan also discusses the land needs associated with affordable
housing development and identifies potential funding for the program.
1) Conservation land acquisitions have included freshwater wetlands,
freshwater ponds, buffer areas, and critical recharge areas of the
groundwater lenses which sustain freshwater flows into the wetland
habitat areas.
— Since 2005, the Monroe County Land Steward is a partner with the Florida
Keys Invasive Exotics Task Force and has undertaken numerous exotic plant
removal projects in County -owned parcels, using annual grant funding from
the Florida Fish and Wildlife Conservation Commission Invasive Plant
Management Section.
1) The policies in the current Plan prohibit the planting of highly invasive
exotic plants throughout the County. The County provides education to the
public of the need to remove invasive plant materials from existing
developed areas.
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• The GOPs (Objective 203.3, Goal 207 and associated objectives and policies)
direct Monroe County to protect wildlife habitats and threatened and
endangered species, such as the Key deer. Monroe County developed and
adopted a Livable CommuniKeys Plan and Habitat Conservation Plan (HCP) for
Big Pine Key and No Name Key. The HCP was implemented in 2006 to protect
the Florida Key deer as well as other protected species, including the Lower Keys
marsh rabbit and the eastern indigo snake.
• Pursuant to the requirement of Objective 206.3, beach management plans are
recommended to address the problems of erosion and invasive plants.
• The Objective 208.2 and its associated policies direct Monroe County to establish
standards for mining activities and the reclamation of abandoned mining sites.
Policy 208.4.2 requires the County to inventory abandoned mining sites. As of
December, 2010, there is no complete inventory of abandoned mining sites. The
County should inventory abandoned mining sites.
• Goal 210 of the Comprehensive Plan calls for an ongoing restoration program for
public lands. The County undertakes projects based on management or
maintenance needs or by public request. The County uses a combination of local,
State, and federal funds to implement specific projects. Local funding comes
from the Monroe County Environmental Land Management and Restoration
Fund, which receives monies paid to the County as fines or penalties for
environmental crimes, or as payments in lieu of replacement of native vegetation
destroyed during the land development process.
• Goal 212 of the Plan requires the prioritization of the County's shoreline
development. In 2005 the County retained the South Florida Regional Planning
Council (SFRPC) to develop the Monroe County Marine Management Strategic
Plan which included strategies for protecting and preserving water dependent
uses (specifically working waterfront uses). In 2007 the County again retained
the SFRPC to develop the Monroe County Working Waterfronts Master Plan
which included recommended Comprehensive Plan and Land Development
Regulation amendments designed to prevent the conversion of water dependent
facilities and services to non -water dependent development. These
amendments have not been adopted.
— The County should evaluate and revise existing policies to provide additional
strategies for protecting and preserving water dependent uses and provide
further detail and guidance for the development of implementing land
development regulations.
• Policies 212.2.1 and 212.2.3 establish the shoreline setbacks for principle and
accessory structures. Monroe County should evaluate the setback requirements
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for consistency with community character of existing structures and, as
appropriate, revise the setback standards.
• Policy 213.1.1 requires the County to prepare a "Public Access Plan" by
December 31, 2006. Although this plan has not been completed, the update of
the Technical Document that is currently underway will provide an inventory
and estimated need for public access points, marina, boat ramps, etc. The
County should determine if further studies are necessary.
• Goal 216 and its associated objectives and policies direct Monroe County to
reduce hurricane evacuation clearance time to 24 hours by the year 2010. In
2010, the Florida Keys Hurricane Evacuation Study (The Miller Model) was
updated to include phased evacuation; the Florida Department of
Transportation's 5-Year Work Program roadway projects; and updated
participation rate and traffic flow rate assumptions to determine projected
clearance time results. The County continues to participate in efforts to update
evacuation model assumptions.
• The element includes outdated or no longer applicable objectives and policies;
these are identified in the attached Appendix 1 and should be reviewed closely
and revised or deleted accordingly.
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3.3 Traffic Circulation Element
Overview
The purpose of the Traffic Circulation Element is to provide a safe, convenient,
efficient, and environmentally -compatible motorized and non -motorized
transportation system for the movement of people and goods in the County.
The FDOT is responsible for maintaining and improving U.S. 1 and South Roosevelt
Boulevard/S.R. A1A. SR A1A begins at the intersection of Bertha Street and
Roosevelt Boulevard as a four lane undivided roadway, extending eastward past the
Key West International Airport (KWIA) before terminating at the intersection with
U.S. 1 at the east end of the island.
The Monroe County Division of Public Works is responsible for maintaining and
improving County roads. The Division of Engineering is responsible for planning
County road and bridge improvements and overseeing and administering
contracted road and bridge repair projects.
The following are the major achievements, successes, shortcomings and
recommendations for the element:
Successes and Shortcomings
Overall, since the last EAR (2004), the County has successfully implemented the
Traffic Element goals, objectives, and policies (GOPs) of the Plan.
• The Traffic Circulation Element currently promotes orderly and economic
development through the Concurrency Management System by ensuring that
public facilities and services, including roads be available concurrent with the
impacts of development as required by Rule Chapter 9J-5 F.A.C. (Objective 301.2)
• The GOPs direct Monroe County to ensure all roads have sufficient capacity to
serve development at the adopted Level of Service (LOS) standards. Further,
Policy 301.2.1 requires the County to use the methodology developed by the US-
1 Task Force to monitor peak season traffic volumes and, "...determine the
cumulative impact of development and through traffic." An annual arterial travel
time and delay study is conducted by FDOT. The results are used in conjunction
with the Methodology to determine US-1 LOS.
— The County maintains an inventory of their major maintained roads and
bridges, respectively, including CR-905 through North Key Largo and Card
Sound Road (CR-905A), which, when combined, provide an alternate route to
the mainland.
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• In accordance with Objective 301.6, the FDOT's Five Year Work Program, which
is updated annually and incorporated into the County's Capital Improvement
Schedule, provides a schedule of major roadway improvements.
• Pursuant to Policy 301.3.1, the Monroe County Engineering Division prepares a
Seven Year Roadway/Bicycle Path Plan, which is updated annually. Proposed
roadway improvements are evaluated and prioritized based on a point system
developed by the County.
Recommendations
• Policy 301.2.4 requires the County to complete, by January 4, 1998, a study that,
"considers the feasibility of improving portions of the Old Overseas Highway into
a series of frontage roads and alternative routes to US-1." Roadway
interconnectivity is explored within the individual Livable CommuniKeys Plans
and the use of abandoned roads and existing trails is analyzed in the Florida
Keys Overseas Heritage Trail Master Plan (FKOHTMP). The County should
continue to address this through the Livable CommuniKeys Plans and consider if
this policy should be revised.
• Coordination with the Florida Department of Transportation (FDOT) is vital in
the Florida Keys. While the County provides for FDOT representation at the
County's Development Review Committee, unfortunately FDOT representation is
not consistent. The potential for better coordination is vital due to the role of
U.S.1 in the County and the implementation of the Livable CommuniKeys Plans.
• The element includes outdated or no longer applicable objectives and policies;
these are identified in the attached Appendix 1 and should be reviewed closely
and revised or deleted accordingly.
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3.4 Mass Transit
Overview
The purpose of the Mass Transit Element is to provide a coordinated surface
transportation system for transportation disadvantage people with the County and
to encourage such as system for all residents and guests.
The County is currently served by two main public transit systems:
• Miami -Dade Transit in the northern region of the County with two routes (Dade -
Monroe Express and Card Sound Express) serving the County from Key Largo to
the City of Marathon; and
• The City of Key West Department of Transportation which operates:
- Key West Transit with four fixed -route bus routes serving the City of Key
West and Stock Island;
- The Lower Keys Shuttle providing service in the southern portion of the
County from the City of Marathon to the City of Key West; and
- The Key West Park-N-Ride at The Old Town Garage.
Other transit related services providing limited service in the County include:
- Monroe County Transit's Paratransit Service;
- Guidance Clinic of the Middle Keys; and
- Greyhound Bus Line.
The following are the major achievements, successes, shortcomings and
recommendations for the element:
Successes and Shortcomings
Overall, since the last EAR (2004), the County has successfully implemented the
Mass Transit Element goals, objectives, and policies (GOPs) of the Plan.
• Objective 401.1 seeks to, "...encourage the provision of transit service for all
residents to major trip generators." As noted above, public transit services are
available: the Dade -Monroe Express (MDT #301) in the northern region
between Florida City, Key Largo and Marathon; the Card Sound Express (MDT
#302) between Florida City and Ocean Reef Club (Key Largo); and the Lower
Keys Shuttle in the southern region of the County between Key West and
Marathon.
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• While there is no official transfer station for the aforementioned transit services,
the bus stop at U.S. 1 and Sombrero Beach Road (MM 50) does serve as a
midway point at which riders can transfer to/from the Lower Keys Shuttle and
the Miami -Dade Express #301 route.
Recommendations
• The County should continue to develop strategies to reduce trips on US1.
• The County should continue to coordinate with the municipalities to further
facilitate mass transit in the Florida Keys. Coordination and actions may be
taken to:
— Establish coordination agreements with Key West Transit and other transit
operators.
— Provide signage alerting passengers to the location of the "transfer" stop at
MM 50.
— Developing an inventory of designated bus stops and shelters
— Providing additional designated bus stops and shelters (signed, with or
without amenities) throughout the U.S. 1 Corridor. This is especially
significant in the Upper Keys, north of Marathon.
— Develop park -and -go facilities.
• The element includes outdated or no longer applicable objectives and policies;
these are identified in the attached Appendix 1 and should be reviewed closely
and revised or deleted accordingly.
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3.5 Ports, Aviation and Related Facilities
Overview
The purpose of the Ports, Aviation and Related Facilities Element is to provide a
safe, convenient, efficient, and environmentally -compatible motorized and non -
motorized transportation system for the movement of people and goods in the
County.
Within the County, there are eight airport facilities. The Key West International
Airport (KWIA) provides commercial flights to the community. The Florida Keys
Marathon Airport (FKMA) .provides mainly general aviation services. There are also
four private airports or airstrips, one seaplane facility, and one military aviation
facility: the U.S. Naval Air Station Key West (NAS Key West). The KWIA and the
Naval Air Station are situated in the Lower Keys. The FKMA is located in the Middle
Keys. The seaplane facility is located on Stock Island. The four private airstrips are
located throughout the Florida Keys.
Naval Air Station Key West (NAS) consists of approximately 5,800 acres with
facilities located in 13 different areas of the lower Florida Keys. Boca Chica Field,
NAS Key West's primary site and airfield, is located on Boca Chica Key. Boca Chica
Field is approximately three miles east of the City of Key West and consists of
approximately 4,700 acres encompassing nearly the entire key. In the 1970s and
1980s, the Navy implemented an Air Installations Compatible Use Zones (AICUZ)
program at NAS Key West (Boca Chica Field) to encourage, through local
cooperation, compatible development in and around the Navy airfield in the County.
While there is an abundance of coastline in the County, only two areas are
considered port facilities. The Port of Key West, which consists of cruise ship berths
and passenger ferries; while the privately owned Stock Island port is considered to
be the only truly industrial, deep water port in the County.
The following are the major achievements, successes, shortcomings and
recommendations for the element:
Successes and Shortcomings
Overall, since the last EAR (2004), the County has successfully implemented the
Ports, Aviation and Related Facilities Element goals, objectives, and policies (GOPs)
of the Plan.
• The GOPs (Objective 501.1) direct Monroe County to preserve existing airports,
airstrips, and related activities; and to coordinate surface transportation access
to existing and new public airport facilities. The County continues to implement
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these GOPs. Recently, the County built a 400-space parking garage located on
the south side of the Terminal at the Key West Airport. This garage provides 95
short-term spaces, 150 long-term spaces, and 155 parking spaces for car rentals.
A total of 13 curb spaces are provided for taxis.
• Pursuant to the requirement of Policy 501.2.2 related to the airport master
plans, recent additions to Florida Keys Marathon Airport include the following:
- Monroe County Sheriff's hangar and apron;
- Expansion of the Grant Air (FBO) apron and hangar;
- Construction of 32 "T-Hangars;"
- Coast (FBO) apron;
- Antique Air Hangar;
- Relocated four -bay shade hangars to the northeast sector;
- Construction of the Mosquito Control Facility at the east end of the airport;
and
- New Airport Rescue and Fire Fighting (AARF) Building.
• Goal 502 and its associated objectives and policies direct Monroe County to
preserve and enhance existing ports and port related activities. In 2006, Monroe
County developed a Livable CommuniKeys Plan for Stock Island/Key Haven. In
2005 the County retained the South Florida Regional Planning Council (SFRPC)
to develop the Monroe County Marine Management Strategic Plan which
included strategies for protecting and preserving water dependent uses
(specifically working waterfront uses). In 2007 the County again retained the
SFRPC to develop the Monroe County Working Waterfronts Master Plan which
included recommended Comprehensive Plan and Land Development Regulation
amendments designed to prevent the conversion of water dependent facilities
and services to non -water dependent development. These amendments have
not been adopted.
• The County has included a liaison from NAS-Key West as a non -voting member
of the Planning Commission.
• The County continues to notify the commanding officer of NAS-Key West of
proposed changes to the comprehensive plan and land development regulations
that would affect the land use adjacent to the military base.
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Recommendations
■ The County should determine if policies need to be revised to provide additional
strategies for protecting and preserving water dependent uses and provide
further detail and guidance for the development of implementing land
development regulations.
• In 1986 Monroe County codified in their Land Development Code (LDC) the
1977 NAS Key West 1977 AICUZ Map, taken from the 1977 AICUZ study and is
currently utilizing this data when considering development applications. In
2004, the Navy prepared an updated CY 2007 AICUZ map for NAS Key West. The
2007 AICUZ map encompassed a substantially larger area compared to the 1977
AICUZ map. Because of deficiencies and discrepancies that exist between these
two maps, which are future explained in the updated Technical Document, the
2007 AICUZ map has not been codified into the Monroe County LDC and is not
utilized by the County when considering development applications. The Navy is
currently undertaking an Environmental Impact Statement (EIS) to evaluate
alternatives for future airfield operations at NAS Key West. The Draft EIS is
scheduled to be released by the Navy during the summer of 2011. The County
will continue to work closely with the Navy throughout the process. This
includes the establishment by the Board of County Commission of a NAS Key
West EIS Oversight Committee. Upon completion of the EIS, the County will
review any updated AICUZ map and adopt appropriate changes to its
Comprehensive Plan.
• The element includes outdated or no longer applicable objectives and policies;
these are identified in the attached Appendix 1 and should be reviewed closely
and revised or deleted accordingly.
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3.6 Housing Element
The Housing Element is intended to provide guidance for the development of plans
and policies to meet housing deficits and summarize existing and future housing
needs.
The Housing Element includes:
• An assessment of existing housing conditions and characteristics
• A future housing needs assessment based on population projections
• A determination of available vacant land for residential development
purposes
The following are the major achievements, successes, shortcomings and
recommendations for the element:
Successes and Shortcomings
Overall, since the last EAR (2004), the County has successfully implemented the
Housing Element goals, objectives, and policies (GOPs) of the Plan.
• The County developed the Land Acquisition and Management Master Plan in
August of 2006 as required by Policy 601.1.6. The plan includes a detailed
funding plan, identifying both current and future funding sources and an
implementation strategy for acquisition. The plan also discusses the land needs
associated with affordable housing development and identifies potential funding
for the program.
• To implement Policy 601.1.12, the County has adopted Land Development
Regulations to provide incentives to promote the development of affordable
housing. While the County has provided a variety of incentives to encourage the
development of affordable housing, affordable housing continues to be an issue
in the County.
• As required by Policy 601.1.1, in 2007, the Monroe County Housing Needs
Assessment was prepared by Florida International University. The purpose of
the assessment was to, "provide a quantitative housing needs assessment that
can serve as a baseline for understanding Monroe County's housing supply and
demand relationship by sub -region."
• The establishment of the Tavernier Historic District provides a mechanism for
protection of significant housing as required by Policy 601.3.4.
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Recommendations
• The County has developed a variety of incentives to encourage the development
of affordable housing; however, due to the high cost of land, limited subsidies
and limited available ROGO allocations, the availability of affordable housing
continues to be an issue in the County. The County should continue to
coordinate with the municipalities and the Department of Community Affairs
regarding affordable housing.
• The element includes outdated or no longer applicable objectives and policies;
these are identified in the attached Appendix 1 and should be reviewed closely
and revised or deleted accordingly.
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3.7 Potable Water Element
Overview
The purpose of the Potable Water Element is to support FKAA in the fulfillment of
their statutory obligation and authority to provide for a safe, high quality and
adequate supply, treatment, distribution, and conservation of potable water to meet
the needs of present and future residents.
There are no significant sources of fresh surface water in the populated Florida Keys
portions of the County. Today, the FKAA remains the sole supplier of centralized
potable water to the Keys, and the vast majority of the County residents receive their
potable water, supply and distribution, from the FKAA system. Therefore, the County,
being a retail customer of FKAA, does not have any local responsibility for potable
water supply or distribution to its citizens. The primary source of water to the Keys is
from the FKAA's Florida City wellfield, which pumps water from the Biscayne Aquifer
and the Floridan Aquifer System in southeastern Miami -Dade County.
There are alternative potable and non -potable water supplies in use in the Keys; such
as: private cisterns, private wells (See Natural Groundwater Aquifer Recharge
element for listing), home desalinization systems, and bottled water. Most users of
these alternative sources rely on them only as supplements to the FKAA water.
Cistern and well water, are often reserved for irrigation and other non -potable uses.
A few residents of mainland Monroe County are served by private wells and cisterns.
The following are the major achievements, successes, shortcomings and
recommendations for the element:
Successes and Shortcomings
Overall, since the last EAR (2004), the County has successfully implemented the
Potable Water Element goals, objectives, and policies (GOPs) of the Plan.
• As required by Objective 701.1, Policy 701.1.3 and Policy 701.1.4, the Potable
Water Element currently promotes orderly and economical development
through the Concurrency Management System by ensuring that public facilities
and services, including potable water be available concurrent with the impacts of
development as required by Rule Chapter 9j-5 F.A.C.
• Objective 701.4 seeks to assure cooperation between the County and Miami -Dade
County to, "...protect the recharge area of the Florida City Wellfield from potential
sources of groundwater contamination." Protection of the FKAA Florida City
Wellfield is accomplished through the provisions of the Miami -Dade County
Potable Water Supply Well Protection Ordinance (Miami -Dade County Code 24-
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43). This Code contains the following provisions regarding the protection of the
County's water supply service: Septic Tanks, Sanitary Sewers, Stormwater
Disposal Methods, Prohibition of Hazardous Materials within Wellfield Protection
Areas, Excavation, Pipelines for Hazardous Materials and Prohibition of Resource
Recovery and Management Facilities with Wellfield Protection Areas.
• Objective 701.8 addresses the capacity issue relating to fire flows. The FKAA and
Monroe County entered into entered into an agreement in September 2007, for
installation and maintenance of fire hydrants in unincorporated Monroe County.
This agreement acknowledges that the majority of the water distribution system
is not designed to provide fire flow and FKAA does not guarantee fire flow. The
purpose of fire hydrants are/will be to provide various locations for the filling of
fire -fighting apparatus. The agreement also states that the County Fire Rescue will
recommend fire hydrant locations for proposed plans on the distribution system,
while FKAA will evaluate the technical and economic feasibility of the
recommended locations. The agreement continues to define funding and
maintenance fee responsibilities between the County and the FKAA.
• To further Objective 701.9, the County has water efficiency standards to augment
South Florida Water Management District and Florida Keys Aqueduct Authority
programs as defined in the 2007 Florida Building Code.
• As required by Policy 701.9.1, Monroe County adopted Section 114-102 of the
Land Development Code which requires that 70 percent of the plant materials
used to satisfy landscaping requirements for new development will be native
species which require little irrigation.
• The County has a water conservation component of the Nonresidential Rate of
Growth Ordinance (Section 138-47, MCLDC) as required under Policy 701.9.7.
The intent of this ordinance is to encourage the planting of native vegetation and
promote water conservation. The graded scale (points) are assigned to the
project based on the percentage of native landscape plants on the property
beyond that is required within landscaped bufferyards and parking areas.
• To implement Objective 701.9, the County developed a 10-year Water Supply
Work Plan that identifies alternative water supply projects, traditional water
supply projects, conservation, and reuse necessary to meet the unincorporated
area water supply needs, consistent with the SFWMD Lower East Coast Regional
Water Supply Plan and the FKAA 20-year Water System Capital Improvement
Master Plan.
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Recommendations
• The element includes outdated or no longer applicable objectives and policies;
these are identified in the attached Appendix 1 and should be reviewed closely
and revised or deleted accordingly.
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3.8 Solid Waste
Overview
The purpose of the Solid Waste Element is to provide for adequate collection,
disposal and resource recovery of solid waste in an environmentally sound and
economically feasible manner to meet the needs of present and future County
residents.
The Public Works Division, Department of Solid Waste/Recycling (PWD-DSW/R)
overseas the solid waste disposal and recovery program for the County.
The following are the major achievements, successes, shortcomings and
recommendations for the element:
Successes and Shortcomings
Overall, since the last EAR (2004), the County has successfully implemented the
Solid Waste Element goals, objectives, and policies (GOPs) of the Plan.
• The Solid Waste Element currently promotes orderly and economical
development through the Concurrency Management System by ensuring that
public facilities and services, including solid waste be available concurrent with
the impacts of development as required by Rule Chapter 9J-5 F.A.C. , as required
by Objective 801.1.
• Pursuant to Policy 801.1.2, and Monroe County Land Development Code
(MCLDCs), "... sufficient capacity shall be available at a solid waste disposal site to
accommodate all existing and approved development for a period of at least three
years from the projected date of completion of a proposed development or use"
(MCLDC, Section 114-2(a)(2)).
— The determination of sufficient capacity is assessed on an annual basis. As
stipulated in Section 114-2(b)(3) of the MCLDC, capacities for solid waste and
other public facilities are updated and presented each year on or before June
15th in a public facilities capacity assessment report that is approved by the
Board of County Commissioners.
• The County entered into a haul out contract with Waste Management Inc. (WMI)
in 1990 to have its solid waste hauled out of the County, pursuant to Objective
801.3. Since that time, the County has continually renewed five year contracts
with WMI. The County has been paying annual disposal fees on a per ton basis of
municipal solid waste.
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• To implement Objective 801.4, currently, the County's recycling program consists
of a voluntary curbside collection system, recycling centers at each of the solid
waste transfer stations, and voluntary commercial collection. Recycling programs
related to commercial establishments have been developed and put in place. The
Monroe County School District has developed and implemented programs at all
County schools.
— In addition to the curbside collection, recycling centers have been made
available to the residents as part of County's recycling program. The current
drop-off centers are located at (1) Cudjoe Key Transfer Station (MM 21.5,
Blimp Road), (2) Long Key Transfer Station (MM 68), and (3) Waste
Management Recycling Center (MM 100.2, 300 Magnolia St. Key Largo).
— These locations accept recyclable material that coincides with curbside
collection of recyclable material.
— In addition to typical recyclable materials (paper, plastic, glass, and metals),
electronic waste (E-waste) and household hazardous wastes are accepted
twice a month.
• As required by Policy 801.4.7, a program to remove, crush and haul abandoned
vehicles for processing has been developed by the County. This service is
provided to the County through contractual agreements.
• In accordance with Objective 801.5, the County is responsible for monitoring
small quantity hazardous waste generators. This program is managed by the
Department of Health. There are approximately 800 potential small quantity
generators that are registered in the County. Each small quantity generator is
responsible for the transportation and disposal of its own hazardous waste;
however, as part of the agreement with the County, small quantity generators can
contract with the County's private contractor, at reduced rates.
— PWD-DSW/R has temporary storage facilities at Cudjoe, Long Key, and Key
Largo for small quantities of household hazardous material and electronic
waste. The County accepts household hazardous material and electronic
waste during specified times and days at all three transfer station sites and
sponsors special collection events at no charge to residents. Small quantities of
these materials are accepted from businesses for a fee during regular
collection hours. In addition, the County has encouraged auto repair stations to
voluntarily collect batteries and waste oil from their customers as a public
service.
— PWD-DSW/R offers training sessions and classes on hazardous waste
management to various business and community groups. Training, along with
evaluation and assessment, is one of the topics on which the Cooperative
Extension Service has written materials, slides, and a video that are available
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upon request. The County sponsors special household hazardous material and
E-waste collection events at no charge to residents.
• Objective 801.7 directs Monroe County to promote public awareness of the
initiatives to recycle and reduce the solid waste stream. A revised comprehensive
program for public education and awareness of recycling is currently in
development and is being implemented for the entire County. Updated brochures,
an on-line newsletter, press releases, and media interviews are prepared on a
regular basis by PWD-DSW/R.
— A list of all local newspapers, radio stations and television stations has been
compiled. News releases and public service announcements are sent regularly
to all local newspapers and radio stations. Paid advertisements have been
utilized for publicizing special recycling events. Brochures have been
prepared and distributed and flyers to promote recycling events have been
circulated throughout the County by PWD-DSW/R.
Recommendations
• The element includes outdated or no longer applicable objectives and policies;
these are identified in the attached Appendix 1 and should be reviewed closely
and revised or deleted accordingly.
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3.9 Sanitary Sewer
Overview
The purpose of the Sanitary Sewer Element is to provide for the adequate,
economically sound collection, treatment, and disposal of sewage which meets the
needs of present and future residents while ensuring the protection of public health,
and the maintenance and protection of ground, nearshore, and offshore water
quality.
The following are the major achievements, successes, shortcomings and
recommendations for the element:
Successes, Shortcomings and Recommendations
Overall, since the last EAR (2004), the County has successfully implemented the
Sanitary Sewer Element goals, objectives, and policies (GOPs) of the Plan.
• The Sanitary Sewer Element currently promotes orderly and economical
development through the Concurrency Management System by ensuring that
public facilities and services, including sanitary sewer be available concurrent
with the impacts of development as required by Rule Chapter 9J-5 F.A.C. , as
required by Policy 901.1.1.
• Monroe County is designing and constructing sanitary sewer facilities in order to
comply with Objective 901.4 and Sections 380.0552, 381.0065 and 403.086 of the
Florida Statutes. Since facilities are being constructed, the County should revise
the level of service standards in Policy 901.1.1 to establish a level of service
standard to ensure that adequate facility capacity will be provided for future
development.
• Pursuant to Objective 901.1, Monroe County has adopted a Sanitary Wastewater
Master Plans and continues to utilize the County's limited financial resources to
address existing wastewater issues. Additionally, Monroe County assigns
positive points for proposed developments that will be connected to a central
wastewater system to direct growth to areas with sewers.
Recommendations
• Although originally planned to provide compliance by July of 2010, the Monroe
County Sanitary Wastewater Master Plan (the "Master Plan") has fallen short
mainly due to a gap in funding. Although many tasks identified in the Master
Plan remain incomplete, all are being addressed. The remaining tasks consist
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mainly of costly capital improvement projects for which funding remains the key
issue to implementation.
- The Keys Wastewater Plan - November 2007 Report, prepared at the request
of the Florida House of Representatives Environmental and Natural
Resources Council, identified progress of the individual projects along with
local government responsibilities for specific facilities. The executive
summary of the report cited a funding gap of approximately $336 million in
meeting the July 2010 date for compliance.
- In April 2010, the Florida Senate and House approved SB 2018 extending the
deadline for compliance to the end of 2015, and postponing fines and
potential liens against property owners. In addition, the bill authorized $200
million of State funding for improvements; however, the source of funding
remains unresolved. Meeting the 2015 extension requires a detailed
financial plan to implement necessary plant and infrastructure
improvements. The funding gap of $330 Million, which has already stretched
the County's capacity for debt service, continues to broaden due to a delayed
revenue stream resulting from delays in design and construction of new
systems.
- Monroe County should revise the Comprehensive Plan to be consistent with
recent statutory deadlines for wastewater improvements.
• To date, the County has not imposed assessments on residents as it could result
in home forfeitures and financial hardship. The varying costs among projects
pose additional problems. For example, areas such as Cudjoe Regional System,
projected at $20,000 per EDU, costs up to two times as much as other systems
costing approximately $10,000 per EDU. Improvements to Cudjoe Regional
System could require supplemental funding to bring costs in -line with other
systems to avoid an unreasonable burden to the residents. The County looks to
State and Federal assistance to make up the difference. Due to uncertainties, all
alternative avenues for funding need to be explored and implemented. Without
a detailed financial plan and diligent pursuit of funding sources, there is concern
that the 2015 extension may not be met.
• Pursuant to Objective 901.4, the County is constructing sanitary sewer facilities.
The County should revise the level of service standards in Policy 901.1.1 to
establish a level of service standard to ensure that adequate facility capacity will
be provided for future development. All proposed improvements at or above
100 percent utilization should be further analyzed to ensure conformance with
future demands. In addition, the reallocation of demands from Permanent to
Functional Population and the migration from Upper to Lower Keys may result
in the need to confirm plant capacities.
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— The pending EPA Water Quality Standards for the State of Florida's Lakes and
Flowing Waters and Marine Systems, 40 CFR, part 131, may have impacts on
both existing and proposed facilities. The mandates associated with this
program may introduce additional requirements for treatment and result in
further improvements to both regional and small private facilities.
• The element includes outdated or no longer applicable objectives and policies;
these are identified in the attached Appendix 1 and should be reviewed closely
and revised or deleted accordingly.
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3.10 Drainage
Overview
The purpose of the Drainage Element is to provide a stormwater management
system which protects real or personal properties, and which promotes and
protects ground and nearshore water quality.
The following are the major achievements, successes, shortcomings and
recommendations for the element:
Successes and Shortcomings
Overall, since the last EAR (2004), the County has successfully implemented the
Drainage Element goals, objectives, and policies (GOPs) of the Plan.
• The Drainage Element currently promotes orderly and economical development
through the Concurrency Management System by ensuring that public facilities
and services, including drainage be available concurrent with the impacts of
development as required by Rule Chapter 9J-5 F.A.C., as required by Objective
1001.1 and Policy 1001.1.2 of the Plan.
• The GOPs direct Monroe County to stormwater management system which
protects real and personal properties, and which promotes and protects ground
and nearshore water quality. The County has adopted a Stormwater Master
Plan, a Stormwater Management Ordinance and prepared a Manual of
Stormwater Management Practices which provides information on acceptable
forms of Best Management Practices (BMPs), e.g. rate control structures, catch
basins with skimmers and baffles, and wet and dry detention/retention facilities.
• Policy 1001.1.3 requires the establishment of Stormwater Management
Ordinance. In the past, the only controls on stormwater imposed by the County
were those involving flood protection and floodplain encroachment in Section 122
of the Monroe County Land Development Code (MCLDC). Subsequently, the
MCLDC has been revised, based on recommendations provided in the County's
Stormwater Management Master Plan (SMMP), to not only provide stormwater
controls for flood protection and floodplain encroachment, but also to include
water quality controls in Section 114-3 of the MCLDC.
Recommendations
• Policy 1001.1.6 directs Monroe County to complete an inventory and analysis of
existing public and private drainage facilities in the County. At the present time,
only project specific surface water management systems exist in the County that
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are capable of servicing existing land use or mitigating associated impacts. A
facility -specific land use inventory has not been completed to ascertain the
drainage system needed to serve a combination of residential, commercial,
industrial, extractive, institutional and agricultural land uses as well as public
facilities, conservation/preservation areas and vacant lands. The County should
undertake the inventory and evaluation of existing drainage structures and
facilities within county rights -of -way, identifying flooding issues; and, obtain data
from the FDOT and municipalities for their facilities, collaborating efforts to
resolve common issues.
— The Division of Public Works is the maintenance department for County
buildings, parks, vehicles and equipment, and roads. The Monroe County
Engineering Division should consider hiring a contractor to undertake the
inventory and evaluation of existing drainage structures and facilities within
county rights -of -way and identify flooding issues by using drainage system
records and plans and by obtaining data from the County Road Department,
FDOT, etc.
• The element includes outdated or no longer applicable objectives and policies;
these are identified in the attached Appendix 1 and should be reviewed closely
and revised or deleted accordingly.
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3.11 Natural Groundwater Aquifer Recharge Element
Overview
The purpose of the Natural Groundwater Aquifer Recharge Element is to protect the
quality and quality of water in the potable water aquifer and the freshwater lens
systems and preserve ecosystems dependent upon freshwater.
The following are the major achievements, successes, shortcomings and
recommendations for the element:
Successes and Shortcomings
Overall, since the last EAR (2004), the County has successfully implemented the
goals, objectives, and policies (GOPs) of the Plan.
• The potable water supply resources used by the County, including both the aquifer
system and treatment facilities, are geographically located in Miami -Dade County -
entirely outside of the County's jurisdiction (see Chapter 8.0, Potable Water
Element). As a result of the potable water source for the County being located
entirely within Miami -Dade County, aquifer protection related to the FKAA's
Florida City Wellfield is accomplished through the provisions of the Miami -Dade
County Wellfield Ordinance, pursuant to Goal 1101 of the Plan.
• The current Stormwater Management Ordinance addresses the need to handle
stormwater on site as a water quality strategy; however, it does not stress the
need to retain natural drainage features and reduce impervious surfaces as
required by Policy 1101.2.1.
• Objective 1101.2 requires the County to, "...map the freshwater lens systems and
associate recharge areas in the Florida Keys..." The maps of freshwater lenses on
Big Pine Key were updated in 2010.
Recommendations
• While the current Stormwater Management Ordinance addresses the need to
handle stormwater on site, in order to comply with Policy 1101.2.1, standards are
needed to ensure impervious surfaces do not reduce the quantity or quality of
aquifer recharge to the point where the natural resources are significantly
degraded.
• The element includes outdated or no longer applicable objectives and policies;
these are identified in the attached Appendix 1 and should be reviewed closely
and revised or deleted accordingly.
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3.12 Recreation and Open Space Element
Overview
The purpose of the Recreation Element is to plan for a comprehensive system of
recreation and open space lands available to the public.
The following are the major achievements, successes, shortcomings and
recommendations for the element:
Successes and Shortcomings
Overall, since the last EAR (2004), the County has successfully implemented the
goals, objectives, and policies (GOPs) of the Plan.
• The Recreation and Open Space Element currently promotes orderly and
economical development through the Concurrency Management System by
ensuring that public facilities and services, including parks and recreation be
available concurrent with development as required by Rule 9J-5 F.A.C., and as
required by Objective 1201.1.
• Lands designated as Recreation (Policy 101.4.9) provide for public
and private activity -based and resource based recreational
facilities. Lands designated Conservation (Policy 101.4.15) are
primarily for the preservation of natural and historic resources as
well as compatible passive recreational uses. The County has an
abundance of recreation and conservation lands and hundreds of
thousands of acres of submerged lands available for recreational
use.
• The County has been diligent in providing recreation lands, both
resource -based and activity -based for the use and enjoyment of its
residents and the tourist and seasonal population.
Recommendations
While the County has been successful in implementing the majority of the goals,
objectives and policies outlined in the existing Plan, several key provisions have yet to
be fully achieved, while others should be reviewed and modified. These policies are
discussed below:
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• The Level of Service standards adopted under Policy 1201.1 was based upon a
calculation error. The update of the Technical Document provides appropriate
adjustments and reflects the requirements of Rule 9J-5, FA.C. , which now require
the LOS standards to be calculated on the functional population (the permanent
population plus the seasonal population). The County should revise the level of
service standard in the Comprehensive Plan.
• The County should undertake the development of a Parks and Recreation
Management and Maintenance Master Plan pursuant to Policy 1201.3.3, which
requires the County to adopt a master plan for each existing county -owned park.
In addition to the requirements for the these master plans as outlined in Policy
1201.3.6, these plans should also address proper management techniques
consistent with the updated elements of Future Land Use, Recreation and Open
Space, Historic Sites, and Conservation and Coastal Management; and general
maintenance requirements and costs.
• Policy 1201.6 directs Monroe County to ensure access to publicly -owned
recreation and open space areas, including the handicapped and disable. Monroe
County should review current Americans with Disabilities Act (ADA) standards for
accessible design and ensure that the County's policies are consistent.
• Policy 1201.6.4 requires preparation of a Monroe County Parks and Recreation
Master Plan; Policy 1201.6.2 requires the development of an annual park and
recreation facility management plan. In 2005, the County developed a Draft 2005
Monroe County Parks and Recreation Master Plan. This "final draft" of the
document was submitted to the County for review and adoption, but has not been
adopted as of December 2010. Monroe County should evaluate the draft plan and
develop an up-to-date park and recreation management plan.
• Objective 1201.9 directs Monroe County to create a Parks and Recreation
Department. This department was created in 1995, but funding and staffing for
this department was never provided. The County currently has a Parks and
Recreation Advisory Board which reports to the County Commission and works
with both Growth Management and Public Works Divisions.
— The Division of Public Works is the maintenance department for County
buildings, parks, vehicles and equipment, and roads. Monroe County should
consider deleting this policy due to lack of funding and BOCC direction not to
pursue a Parks and Recreation Department.
• The element includes outdated or no longer applicable objectives and policies;
these are identified in the attached Appendix 1 and should be reviewed closely
and revised or deleted accordingly.
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3.13 Intergovernmental Coordination Element
Overview
The purpose of this element is to increase the effectiveness, efficiency, and
responsiveness of government; provide for consistency in decisions and actions
between various departments and agencies; and to improve citizen awareness and
participation.
The following are the major achievements, successes, shortcomings and
recommendations for the element:
Successes and Shortcomings
Overall, since the last EAR (2004), the County has successfully implemented the
goals, objectives, and policies (GOPs) of the Plan.
• Through the existing GOPs, Monroe County has effectively coordinated with
local, state and federal agencies.
• Interlocal agreements have been established with the Florida Keys Aqueduct
Authority and other utility providers to provide wastewater services.
• Some of the Interlocal agreements to be entered into that are specified in policies
throughout this element appear, from best available data, that they have not
been entered into or established.
Recommendations
• The policies identifying specific inter -local agreements should be reviewed
closely and should be revised or deleted accordingly.
• Policy 1301.1.2 states that Monroe County must establish a complete list of
existing and planned intergovernmental and interagency agreements, which
must be updated annually. This has been accomplished through the listing of
agreements posted on the Monroe County Clerk's website. Monroe County may
want to create a comprehensive list of all interlocal agreements for inclusion as
an Appendix in the Technical Document of the Comprehensive Plan.
• The element includes other outdated or no longer applicable objectives and
policies; these are identified in the attached Appendix 1 and should be reviewed
closely and revised or deleted accordingly.
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3.14 Capital Improvements Element
Overview
The Capital Improvement Element (CIE) provides for review criteria of capital
improvements, coordination with the budget, level of service standards, and
concurrency management.
The following are the major achievements, successes, shortcomings and
recommendations for the element:
Successes and Shortcomings
Overall, the County has been successful in implementing the goals, objectives and
policies within the CIE.
• Through the Capital Improvements Element (Goal 1401), the County ensures
that the adopted level of service standards are achieved and maintained and that
existing deficiencies are eliminated.
• The County is currently reviewing and modifying its processes for identifying
and including necessary capital improvements in the annual update.
• The County prepared an amendment to the CIE in December 2010 to respond to
the annual update requirements of Chapter 163 F.S. In February 2011, the
amendment was found to be in -compliance by DCA.
Recommendations
• The County should revise the level of service standards for Recreation and Open
Space (Policy 1201.1) and adopt sanitary sewer level of service standard to
ensure that adequate facility capacity will be provided for future development
(Policy 901.1.1)
• Funding shortfalls continue relating to sanitary sewer implementation. The
County continues to seek funding sources.
• The element includes outdated or no longer applicable objectives and policies;
these are identified in the attached Appendix 1 and should be reviewed closely
and revised or deleted accordingly.
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3.15 Cultural Resources Element
Overview
Cultural Resources is an optional element not required by Florida Statutes or the
Florida Administrative Code. No specific requirements have been instituted for this
element.
The following are the major achievements, successes, shortcomings and
recommendations for the element:
Successes and Shortcomings
• Pursuant to Goal 1501 and its associated objectives and policies, the Board of
County Commissioners (BOCC) created the Tourist Development Council (TDC).
The TDC sets an overall direction for the Monroe County tourism marketing
effort, including cultural activities.
• The residents of Monroe County approved a 3-cent sales tax on tourist lodging
(the bed tax) to be used for tourist advertising, promotion, and some tourist
related capital projects.
• The Florida Keys Council of the Arts (FKCA) is the main source of information on
arts and culture in the Florida Keys. The FKCA provides grants, supports Art in
Public Places, and promotes the Florida Keys rich and diverse history in art and
culture. The Arts Council provides services to visual and performing artists, arts
organizations, students and the public, striving to instill a passion for and
participation in the arts. The FKCA maintains an artist registry; publishes and
distributes a weekly and quarterly Cultural Calendar and gallery guide.
Recommendations
• Goal 1501 directs Monroe County to ensure accessibility, stewardship and
cooperative facilitation in protecting and fostering cultural activities. Monroe
County should review current Americans with Disabilities Act (ADA) standards for
accessible design and ensure that the County's policies are consistent.
• No Data Inventory and Analysis is available regarding existing conditions or
future needs, including an inventory of cultural resources, public artworks, art
education, and programming to formulate a basis to determine the effectiveness
of this element.
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