Item K1 BOARD OF COUNTY COMMISSIONERS
AGENDA ITEM SUMMARY
Meeting Date: I"claruary 1 f3, 2015 Division: Growth Management
Bulk Item: Yes No X Department: Planning & Environmental Resources
Staff Contact Person/Phone 4: Christine Hurley, Ext. 2517
Michael 1olrerts, Ext. 2502
AGENDA ITEM WORDING: Presentation and Discussion of the Trust for Public Lands'
Conservation Finance Feasibility Study and the land acquisition priorities criteria matrix,
ITEM BACKGROUND: The approved contract services include (1) Feasibility research & report on
funding options, (2) Development of a criteria matrix of habitat conditions and development
constraints to be evaluated, and (3) construction of GIS conservation priorities models based on the
assessment criteria detailed in the criteria matrix. The GIS models will be used to determine
Conservation Acquisition Priorities by assessing habitat conditions and development constraints on
each parcel based on the criteria in the attached matrix. After BOCC input and finalization of the
finance feasibility report and criteria. matrix, TPL will produce a GIS file of private, vacant parcels
with assessment and priority classification results. Deliverables include a refined criteria matrix
detailing the classification system used for parcel scoring and ranking. This will enable staff to run
various scenarios as requested by the BOCC.
The initial analysis will be based on the 7,814 vacant, private parcels identified in the White Paper (see
attached table). The model will identify parcels that have significant development constraints and can
be removed from consideration for purchase. The remaining parcels, for which a landowner would
expect to receive a perinit for at least one unit, will be prioritized for land acquisition purposes based
on Conservation priorities and development compatibility, as well as criteria fi-om State and Federal
land acquisition programs.
PREVIOUS RELEVANT BOCC ACTION:
7/17/2013: BOCC directed staff to contract with a firm to gauge community interest in alternative land
acquisition strategies.
2/19/2014: BOCC directed staff to amend contract to provide research relative to land acquisition
funding and to develop a GIS analysis tool to assist staff in prioritizing parcels for acquisition.
7/25/2014: BOCC approved the contract for the Trust for Public Lands (TPL) to identify options for
purchasing or financing future land acquisitions to support the County's conservation and growth
management objectives and to develop a GIS based analysis tool to assist in determining Conservation
Acquisition Priorities by assessing habitat conditions and development constraints on each parcel.
CONTRACT/AGFREEMEN]I CHANGES: None
...............
STAFF RECOMMENDATION: Staff is requesting Board direction regarding the finance Study and
the matrix criteria so TP1, can finalize these components of the contract.
TOTAL COST: $42,360 INDIRECT COST: BUDGETED: Yes X No
DIFFERENTIAL OF LOCAL PREFERENCE: N/A
COST TO COUNTV: $42,360 SOURCE OF FUNDS: N/A
REVENUE PRODUCING: Yes No N/A AMOUNT PER MONTH N/A Year
APPROVED BY: County Atty MB/Parchasing M
--41A O Risk anagement—
DOCUMENTATION: Included X Not Requit-ed
AGENDA ITEM
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C opy sigh t(O )anuary 2015,"1"he"]'rust for Public land.AH rights rescrved.
":N�kb`�"al .,t);11 d I`( � ?Pa 1.:4'�'�`�J! I I,i�7 ,�.i i ,,. ".I a�,- '��I,.I/+,�4 '✓�`, �'�Introduction ..................................................................................... 2
ExecutiveSummary ........................................................................ 3
Overview........................................................................................... 3
Location and Population............. ............ ........ .........---...... .......... ...............—5
1.7cono y..............................................................................................................................................5
LandUse..................................................................................................................... ......6
Governance.........................................................................................................................................6
1'.�"iscal StatUS.................
Parks and Conservation Programs................................................ 7
1 mcal Pro grarns...................................................................................................................................
State Conservation Programs / Florida Forever...........................................................................S
Choosing a Local Funding Strategy.............................................. 9
Local Public Iainance in 1°lca.t:.icla......................................................................................................10
General ObligationBonds ................
,
ropeiTy1 ax......................................................................................................................................12
Infrastructure Sales Tax....................................................................................................................14
SpecialDistricts.................................................................................................................................16
Election4..1'istury............................... ................................................. ...............,....---19
Conclusion...................................................................................... 1 .
Appendices .....................................................................................20
C(Ac-,f ,,v,%'I F I IF),I I I I �S u 1(�v,i 2 01
INTRODL)(1,111-ON
The Trust:for Public Land (['PL) is a national nonprofit land conservation organization working to
protect land for human enjoyrnent air(]well-being Is re(1)),conserving land for parks,greenwa� , -'reation
areas,watersheds and wilderness.ITT,has helped protect nearly 4,300 properties, totaling inore than
three million acres in 47 states. In FI(-.)rida, the Trtw for Public Land has protected more than 160,000
acres of waterfront,greenways,archaeological sites,and iconic "Old Florida" attractions, such as the
Key West Custom House in Monroe County.
'J'o help public agencies or land trusts acquire land,the Trust for Public Land's Conservation F11111111CC
program assists conimuntities in identifying and securing priblic: financing. TPL offers technical
assistance to elected officials,public agencies and community groups to design,pass, and.implement
public funding incasures that reflect popular priorities. f lelping cornin unities secure dedicated
conservation funding is often the tipping point thatt leads to deeper ecological responsibility,including
more prudent land use,better nianaged growth,and increased protection of natural landscapes.To
stimulate engagement across jurisdictions and constnuencies,TIT has historically found effective
partnerships atnong a broad spectrum of phivers froin the,environmental left to the fiscdly
conservative right and recognizes the importance of exploring new tools,such as economic benefits
research, that can encourage and strengthen the willpower of voters tct seek dedicated conservation
funds. This focused, up-front investment pays dividends over the long-term by, securing voter-..
supported funding that is dedicated to conservation.
Since 1996,TPI,has been involved in nearly 500 successful ballot tricasures and twenty successful
legislative campaigns that have created triore than$47 billion in new funding ft)r land conservation.
Voters have approved 81 percent of the ballot measures supp(..)rtcd by'FPL
The study presents several viable local public options for funding]and conservation in Monroe Count),
and provides analysis of which local options and funding levels are legally available,econonrically
ptudent,and likely to he publicly acceptable.I J'his research I)roNrldcs a fact-bascd reference docurncrit
that can be used to evaluate man),available financing mechanisms from an objective vantage point',
The report does not directly address funding for related and important purposes such as restoration,
species management, and stewardship.
Thc Contents of 1his rq)ort arc baq(d on die best avadab c infomnlion it the link of rvsawch and draffing,0crober 2014.
Pocxql�,n'l� C(,)I)�'o 20 1
1". SUNINIARY
Ar, the request of the Monroe Count:7 Board of Commissioners, the Trust for Public Lind his
undertaken a feasibility analysis to explore public funding options available to the county to frild the
acqUiSiLiO11 and development of land as parks,recreation facilities and open space. In a separate study,
the Trust for Public Land will work with the county, to identify priority lands for protection.
A r the heart of the most successful conservation funding programs,is a substantial,long-tern-1,
dedicated source of local revenue.With a reliable source(')f funds,local governments can establish
meaningful conservation priorities that 1,)rotcct the most valuable resources,are geographically
distributed, and other%6sc meet important goals and values. Local and state governments wit],
significant funds are much better positioned to secure and leverage funding from federal government
agencies and attract other local and state goverturient or private plAandiropic partners.
Nationwide,a range of public financing options has been utilized to fund parks and open space
PrCsCr'Vat10n.,I'llese. include ge.neral obligation bonds,the local sales tax, the property tax,and less
frequently used mechanisms such as special assesstrient districts,real estate transfer taxes,irripact fees,
and income taxes. Clon-inn.'arifies in Florida have traditionally been able to rely on a mix of furiduilg due
to the availability of state funding and local conservation funding measures. Local government funding
options for land conservation have pritriarily taken the form of general obligation bonds backed by
property taxes or the infrastructure sales tax. In Monroe County, funding for parks and open space
COnservation currently comes from a \,ariety of revenue sources Including general county ad valorem
taxes, the tourist impact tax, the infrastructure sales tax,and impact fees,
Given the substantial investment of rirrae and resources required for a successful conservation finance
measure campaign,preliminary research is essential to determine the feasibility(r)f such ,.in effort.This
report provides a brief examination of the options for generating and dedicatifig local revenue for
conservairon.2 In order to understand what would be.in appropriate funding source or sources,this
report first,reviews the County's background,including its fiscal stat-us and governance. Next, the
report anal,-yzes possible alternatives for funding a parks and recreation land acquisition,Ind
management:prograna,including their lcg,,al authority and m,enrtc raising capacity. Finally, since Most
revenue options require approval by voters,this report provides pertinent election information, such as
voter turnout lustotir and election results for local finance ineasures.This study focuses ore several
options that present the most viable 0J)POrtUnitieS for financing in Monroe Courity", which are as
follows:
General Obligation Bonds. Monroe. County has debt capacity to issue general obligation
bonds and levy property taxes to pay the debt service on the borids. For example,a bond
issue for$15 nrillion would add roughly
v�51 million to the county's annual debt service and
cost the typical horneoN%rncr an average of S22 per year in additional property taxes for
twenty yelllrll.
The contemn of rhc rcport ire I)a,,wd(m Ow lxi,)vmhblc mformarion at the^r�rne of rescirch and drifting(Fail 2014),with mach of Ox
data compilcd from interact rcsourcc and dirco commumcarion with local,st-ate and fcderM government agencics.
FHw,i,,[c D
Cot&r[,r, COW`I WJIoi"i 1-11w,"I'v"'I, F1, INI,jr 'S1UU� 20 5
Proj-.)er ,tax. The county could consider asking voters to approve a property tax dedicated
to park and open space purposes, For example,based on the county's total taxable value of
21.5 billion estimated for FY 2015, a 0.05 mill increase would generate approximately$1
million annually for parks and conser-vationat a cost of roughly$21 a year to the average
homeowner.
Sales and use tax. The county currently levies all of the relevant local option sales taxes,
however it inay dedicate rnorc of the current revenue to issue revenrie bonds for land
acquisition. .A significant portion of existing debt backed by the county's infrastructure sales
tax will be retired in 2018,potentially frecing approxii-riatcly $3.5 million for other purposes.
Monroe County also could consider the possibility of ametiding existing state statutes to
authorize counties to levy a surtax specifically to (rand land conservation efforts..A new 0.5
percent tax could be expected to generate approxiniately$9 - $10 mahon annually for the
county (roughly $16 million total),at a cost of about$72 a year for the average household in
the county.
Special districts. The county c(>uld consider forli'lling a spe6d district that would levy ad
valorern taxes or special assessments within the unincorporated area. Existing special
districts, including the South Florida Water Managernent District,also could help with land
acquisition that beriefits their respective goals.
Additional smaller local revenue sources could be utilized to SUI)POrt a county parks and conservation
program,such as donations,bequests, and philanthropic Support,but these options have not been
exaturried in this report.
Next steps should include narrowing funding options to those that match the needs identified
by the Monroe County 'Planning and Enviromuental Resources Department and testing voter
attitudes toward a specific set of funding proposals. TPL rccornmends conducting a public
opinion survcy that tests ballot language, tax tolerance,and prograin priorities of voters in Monroe
Countv.
)EPM A
Loc,,tfion arid. Popul,41U'Orl
Monroe County is the Southernmost county in Florida and the LJmted States. It is made up of two
regions, specifically a largely uninhabited portion of E'verglades National Park and Big Cypress
National Preset-ve, and a 125-i-nile-long chain of islands known as the Florida Keys.
In total area, Morime County is comprised of 3,737 square iniles, mostly of water,73 percent. Most
known are the Florida Keys with its string of islands connected by LT.S. Highway 1,which ends in Key
West, 150 miles southwest of Mianni.The bulk of the population lives in communities strung out along
the Keys,With one road and more than 60 bridges serving as the prirnaq trie-ans for people to move
between population centers along the island chain. Key
West is the I I argest of the islands ill the chain with a natural Monroe County Population
AprO 2013 estimate
deep water harbor. Monroe Coun!y 73,560
Monroe County has a 2012 p opulation of n ear ly 73,000 Islamorada,Village of Islands 6,193
Key Colony Beach 802
residents.Approxiinately 61 percent of the county's Key West 24,583
population lives in five incorporated areas:Key Nest:,I Layton 183
Marathon, Key Colony Beach, Layton and Islarnorada.'"I"he marattion 8,419
remainder of the population lives in unincorporated UNINCORPORATED 33,380
Monroe County. l�tt:r;/ � w tla k N_ufi.edu
'rhe Florida Keys attract rnairy seasonal resident,;. ]In 2010, the U.S. Census Bureau reported a total of
52,764 housing units across the Florida Keys. Approximately 62 percent of those housing units
(.32,629) were occupied, Seasonal housing units (15,037) represent approximatcly 28 percent of all
housin units in the I�'toricla Keys. In addition, approximately 1,600 active duty'personnel representing
9 1
all branches of the artried services and 2,500 of their dependents call Key West home. By 2025 the
permanent population of the county is expected to grow to more than 76,000 while the seasonal
resident population is projected to number 84,500.
F,'1c1c,)nomY
"I'lle southern tip of Florida and the Florida Kevs contallis one of the country,'s most diverse
assemblages of terrestrial,estuarine,and marine flora and fauna.The region includes vast freshwater
wetlands of the Florida Everglades and Big Cypress, transitional areas where thewiters of the
Everglades discharge into the estuarine environment of Florida Bay, one of the world's, Largest coral
reef tracts (the only one in the continental United States), the largest contiguous seagrass conitnunity in
the world,and (lie subtropical habitats of the island chain. The environmental setting of the Keys is
exceptional and unique,making the reg e I ,ion a major travel d stination.
The Monroe County Tourist Developinent Council indicates that roughly 3.8 milliort persons visit the
Florida Keys on an annual basis primarily during winter months. Visitors contributed approximateIN
'Information for dik�qcoon w as krgel),cNcupted from county dcpamrni; t Nvcbpages and documenisduring(klobur 2014 Sourco�undudc:
il,a I Id JI"I�1�,� LLln�ULLL�2.LLI L� L21
1'00,NROE CO�JJ Y C0NSFRV'/,,I ON FIkW,JCJ Fr!sii",mw (STUD, Jk0iijf,ro 20�5
$2.23 billion to the local econorny (about 60 percent of total local econorny) and approximately$970
million to local income (about 44 percent of total local income) during the December 2007-November
2008 visitor year-1. In addition,the tourism industry accounted for approxiariately 55percent of the
total work force in tire countA7 (32,107 of 57,928 jobs), Tourisul is the largest industry in the Florida
Keys and the largest employer in Monroe County.
L"rInd tJSC
There are over 4 million acres of publicl'N11-owned (Federal) conservation and recreation lands and
waters provided in the COL111tV.The.ln',driland portion of the county accounts for 1.62 million acres of
this total. Residential uses comprise the next highest land use activity. The county is predominantly a
residential area, with a great deal of focus on a single-family home environment. Its location has
attracted residential development not only for permanent,but also for seasonal residents.
The Keys have long been recognized as stratq,,ically significant by the US,irlilitary forces,and rnllltll�x
operations still play an important role in the economy of the Keys. Niflitary lands account for 4,025
acres,or approximately 53 percent of the unincorporated Keys. Military lands in the UlunCOtporatcd
areas of the County are entirely located in the Lower keys,including the,Boca ChIca Nmal Air Station
on Boca Chica,Rockland and Gciger Keys; and additional facilities on Saddlebunch Key and Cudjoe
Key.f"leming Key and Dredgers Keys in the City of Key West make up air.additional 536 acres of
military land.
Cyovernance,
Monroe Countv is A non-clrariered county. The Board Board of County Commissioners
of Coulliv Con,urniss loners (BOCC),which performs Name District Term
Expires
the legislative and executive functions of the courity -y-KoNge Nbyor 1st 2016
government,consists Of five merribers elected at large orge Neugent 2nd 2018
----------by the citizens, in the general clection in November in klayor Pro Tem
Heather Carruthers 2016
the even years. Each commissioner represents one of 3rd
..........4th......
I 2
five county districts and is elected for a term of four David F
years. Sylvia Murphy 5th 2016
County Mayor is the title given the chairperson of the Board of Commissioners. The Mayor and Mayor
ProTem are elected by the board. As chairperson, the Mayor presides over board ineetings and serves
as representative Of the county oil ce1cul0nial occasions.
Fiscal S1 latt"Is
The 2015 Proposed Budget for Monroe County is S+1 L7 millirm.This represents a $25 million
increase over the 2014 Adopted Budget.The main reason for this increase is the construction of the
Cudjoe Regional wastewater project.Tlils project will be pritnarily funded by Clean Water State
Revolving Loan Funds in 2015.
Metre cnu;the jnost current dma available.
C.l mq, �//,-i i>>PadF
Fto•mm wi,S 1 20 M
Monroe County's,budget is corriposed of a variety of revenue sources. Major revenue Sources for the
County are: Property Taxes,Half-Cent Sales Tax,State Revenue Sharing,Tourist bripact Tax,Motor
Fuel Taxes and Infrastructure Sales'Fax.Ad valorem taxes (property taxes)represent the single largest
revenue, source,directly used for the operation and services for the County and budgeted in the
County's General Fund,Fine and Forfeiture Fund, [^Ireand Anibulance Fund,Parks and Beaches
Fund, and Road Patrol Law Enforcement Fund.
Under state statutes, a portion of the state sales tax revenue is distributed to each county. Monroe
(",ojjjjt,)T reCej,,re,$ a niouthIv revenue receipts based on allocation factors,SLICII as Population (total
count,yand unincorporated areas) and funds eannarked to be distributed within the.county. This
revenue is split between the General Fund and the General Purpose Municipal Service'l"'axing Unit
(NCSTU).The N4STU is discussed further in the Property Tax sectioii of this study. The charts below
illustrate the county's major revenue and expenditure furids
where the Money Comes From(Sowces) "here the Ato ney Goes(Uses)
F Y 2015-tilt Fund s FY2015-AH Funds
Ad Vabnrn
TV,6
Physical
C)pfirA
xd
a&,,Fuel
=Vuvr
mu n w
iom'eq,
FY�raapt
Fee j
Hurunsenves
Ala
IL sh"ei
1C., Id 1'
Irdelfurd Fmo& Taw,
1�awfiw miscenaa*cw FCXfi1tUW 4% 1% WNZU5,6 Recieafiwi
........... .......... 0%
Source:Nforimc County Proposed IN 201 i Budget,p.B-1
PARKSAND C ')NSI�',R I ATI Nly VJ S
J—oc—al P- rograrns,
Monroe County Public Works Management is responsible for guiding,directing and triatiaginv-public
works and facilities,which consists of Facffifics Maintenance (including Detention Facilities, I liggs
Beach and Unincorporated Parks and Beaches), Fleet Management, Roads and Bridges, Card Sound
To]]Authority,Sohd Waste Mariagerrient and AlinilIal Control.This department is funded by Ad
Valorem taxes and other General Revenue Funds. Unincorporated Parks and Beaches maintains over
100 acres of parks and beaches, including playgrounds, tennis courts,basketball courts,and skate parks
CC',,NSF RVA Flo�,,� FJ[11ANCE D.-/,F!I MENT
M,j],I P()� C',o(,J I Y (�i,,�S-R,'A I I("J[ I,,"""�J(; I _/",1P I,I I (�:��,I[) �/',[,!t I ,,0 1 F
from Stock Island to Key l,arg(.,). J"he Department is funded in part by Tourist Development'Yaxes but
it also includes a portion of Ad Valorem taxes.
Relevant Line Items from the FY 2016 Budget Summary
Fund Description Budget
Unincorporated Service District Parks &Rec $2,293,358
ne-Cent Infrastructure Sales Tax Parks&Rec Capital Projects $5,517,881
Impact Fees Fund-Parks &Rec $396,801
The Monroe.County Comprehensive Illait J.,and A urbority was established to acquire property in the
county for conservation,recreation,and affordable hotising. It is a legally separate entity front the
county but is governed by the County Board of Corilillissioners. A five-member advisorycommittee,
appointed by the 130CC, provides recon-uneirdations regarding land acquisitions.The Land Authority
is largely firrided by a surcharge on adinlissions and ovcrtilght occupancy at state parks in tile
unincorporated county and by a half-cent of the tourist impact tax charged on lodging in the Keys.
J'he tourist impact tax was approved by voters in 1988.
The FY 2015 budget for the JA 111d A Uthority is Just over$18 million.The vast majority of`budget
sapproprsations are for property acqUiSiticnis and reserves, The Largest appropriation is for property in
the Key West Area of Critical State Concern (50.6 million), follcrAred by the Rate of Cirowth Ordinance
(ROG(.')) Reserve-5 ($4,8 million),and property in the Florida Keys Area of Critical State Concern ($2.3
million).
S"I
t-at_c2. C,onsemvrion Progr'.1,11,1's / 11orid"'t 11,01T,Vet,
F'Iorida Porever is the umbrella prograin under which sl-wclfic grant-rmdung programs are organized
.in(] fundcd, uICILiding the Florida CommunitlesTrust,Florida C',reenwai,s and'Fralls, and the F )rida,
Recreation Development Assistance Program. Until recently,F'Iorida had an annual budget exceeding
$300 million for land acquisition. This land acqnisition budget exceeded that of any other state or even
the federal government in the I qq()S.6 The state's land acquisition progj.ani,once known as
preservation 2000 or P-2000,purchased over 2.5 million acres in Florida. ["i'Iorida Forever replaced P-
2000 tell years ago, and remained funded at over$300 million annually for(It-lite sorne time, i\lthough
it is unfunded it present, the Florida Forever Progranl is scheditled to C011611LIC to the year 2020,
A Constitutional Amendment (,,Nryiendinent 1) to restore conservation funding was approved
ovenvhchningly by Florida voters at the November 2014 election. Amendment I will dedicate funding
to conserve and restore Florida's waterways and natural areas Lising,exisinig state revenues generated
by real estate transaction,,. Fccs on real estate transactions,known as""doe:stamps,"have been
Raw of Growrh Ordinance or Ro (;(u is a himitmien on d(welopment in the Kols.State law Lhctates fliaq the keys can only bUdd to a
lo'cl in which the cham of lskimN can lic evicumcd 24 hours pnor to a hurricane mitring landf',01.The Land AUTIH)riq Lxpms to purchase
proper6us for m hich do clof)mcnt is limited or preckided bN.this orditimcc.
(;r(g Jerock,llorda's Landmark Programs for Conservnion and Remation Land Acquisition," 14,
avaifible at
F liv, D;-J,-,,R
JANUAR 201E,
allocated tea water and land conservation since 1968, However, since 2009,these fees have been
diverted to the state's general revenues resulting in significant cuts to funding for water and land
conservation projects.Amendment I provides $10 billion over the twenty-year life of the measure,by
dedicating,33 percent of net revenues from the existing excise tax on do curnents for 20 years.
With the committrient of state funds to Florida Forever,Monroe County will be better positioned to
garner grants from tl:,ie conservation prog if it leas I
,ranis I I s a reliable source of matchitig funds as wen as a
set of defined conservation acquisition priorities.
1 7
C110C,)SING A L(1'--/1C',AL FUNDINCT STRATFX'J'�.
Generally, there are three broad,based types of revenuesources available to local governments to pay
for parks and land conservation: discretionary annual spending (i.e. budget appropriation),creation of
dedicated funding meniris such as voter-approved special taxes,and the issuance of bonds.The
financing options utilized by a Community will depend on a variety of factors such as taxing capacity,
budgetary resources, voter preferences,and political will, While rnost local governments can create
funding im park and recreation through their budge arV process, this either happens Infrequently or
does not yield adequate fundling"
In the Trust for Public. band's experience,local governments that create funding via the budget
process provide substantially less funding than those that create funding through ballot incasurcs. As
elected officials go ithrough the process of making critical budgetary decisions, funding for land
conservation often lags behind other public purposes and well behind what voters would support. It is
often quite difficult to)raise taxes without an indisputable public mandate for the, intended purpose,
The power of conservation tinaricc ballot nicasures is they provide a tangible nicaris to iniplement a
local government's vision. With their own funding,l()Cal governments are better positioned to secure
deral governments or private philanthropic partners. I-laying a
scarce funding frown state or fe
predictable funding source empowers the city,Count),, or special district to esW)lish long-term
conservation priorities that protect the most valuable resources',are geographically distributed,and
otherwise trim intport-ant community goals and values.
Nationwide, a range of public financing captions has been utilized by local jurisdictions to fund parks
and open space,including general obligation bonds,the local sales tax, and the property tax.Less
frequently used triechatmistris have,included real estate tramfer taxes, impact fees,and income taxes.
'Fire ability of local governments and special districts to establish dedicated fturding sources depends
UP011 state enabling authority.
Conservation finance measures axe not right for every local government or they inight riot be the best
approach at the moment, Budget appropriations and other revenue mechanisms that can be
implemented by the local government, such as developer incenti-ves,may proNride short-term funding
options while parks and conservation proponents develop a strategy',Ind Cultivate broad support for
longcr-terin financing options.
Mf 7 t,o� (",own , C(q,l I, I cF FE,�,�2ik,l (STUE)Y JANUAR,(2015
Local. Pt,ibbc J.'inance in, Florid,11
The Stare of Florida authoriZes local conimumnes to use various revenue sources for parks and
recreation purposes includisig property taxes, sales and use taxes,general obligation bonds,and the
creation of special districts. Each of these funding mccharnsms requires approval by the electorate and
in varlOus coil Ulu.11110es in the state, they have enjoyed Widespread support.
Voters approved 82 percent of local conservation finance measures (82 of 100) on the ballot in Florida
be"veen 1990 and 2013. General obligation bonds are the most popular public finance tnechanis'm in
Florida for parks and open space. Nearly two-thirds of the local ballot measures for conservation
purposes have sought voter approval for the Local Conservation Finance Mechanisms In Florida
issuance of bonds.
Surnrrary of local ballot measures from 1988-2013
The table to the right:dlustrates the number # # %
and L�ypc of conservation finance measures Mechanism Passed Failed Total Passed
Bond 59 6 65 91%
that have gone before voters over the past Sirty 2 9 21 57%
15 years.The followinga
pages present a PropeTax _I?
3 14 79%
range of public funding mechanisms that Total 82 is 100 82%
Could be used for land acquisition in Sourm TFL LandVote Database
Monroe County
(3'encral C)L)bLnatiori Bonds
k")
Florida COU11ties and ITYUniCilIalities are authorized to issue debt for capital improvement purposes
including parks and open space in the form of general obligation bonds. 'Flic state statutes do not Place
specific hunts on the a11101,111t,of debt that can be incurred by a coninninity,but do bintit the duration of
the bonds to a period not exceeding 40 years.Wien bonds have been issued, the goveturrig body must
levy annually a tax upon taxable property in the jurisdiction sufficient to pay the debt service and
interest on the bonds."
As of September 30,2013, Monroe County had long-term debt in the amount of$81 million.This
debt mainly comprises revenue bonds and notes secured by pledges of revenues. Revenue secured debt
for governmental activities was $3.5 tnilli.)n,Monroe County has no general obligation bonds
R �,
outstanding.'Monroe County bonds have historically been rated"Aaa"and "AAA" from Moody's
Investor Service and Standard& Poor's Corporation,respectively. More recently, die Fitch Rating
agency of New'i'ork affirmed Monroe County's rating as"AA.".These ratings indicate strong credit
and low risk.9
Bonds fOr Pirks ,,tnd Opell Sp',we
The table on the following page inustrates the debt service and trillIage required for bond amounts that
could potentially be issued for parks and open space in Monroe C"clunt.y. For Instance,a bond issue for
$15 million would add roughly$1 iniffion to the county's annual debt service and cost rlic typical
horneowner,in average of$22 per year in additional[)top(,.try taxes,
7 1 haprers 100and 130,and Section 2W.181,
I Morwe Count v 2013 CA FR at p,c-I I
'Xtonn)e Coun" FY2015 Proposcd Annual Budget,p,Al-?,.
R 01',d I!—NAH FAS H,11 f W),' J il'&O�AP Y 20 15
TIT's bond cost calculations provide a basic Bond Financing Costs for Monroe County
estiniate of debt service, tax increase, and cost,
20-yearBond Issues at 4,0%Interest Rate
to the average homeowner iY1 the conirnunity Assessed Value=$21.5 billion
of potential bond issuances for parks and Annual Mill Levy Cost/Year/
land conservation. Assumptions include the Bond issue Size Debt svee Increase Avg.SFR
following: the entire debt,amount is issued in $5 000'000 1 $367,909 0,017 $7
i�o 6-6o on 11- ---$-7 3 51,81-11 070134 11 11 4-
the first. "cart'nd payments arc equal until -6- iii'—
1'5"-",,0-`0-,0,0 0 0 $,1,1 Oi,�"2iS 6&�
mature ty;20- ear triat-urity;and 4 percent ------------
$20,000,000 $1,471,635 O 068 $29
ii�lRY ----------
0 (F
interest rate. The property tax estirriates 0 �
.,207,453 0,102 $43
assume that the jurisdiction would raise Sources:Total county taxable value,Monroe Cnily Growh Mgt GIS.
property taxes to pay the debt service on Wgsingle family residential tax value($423,481),Florida DOR,July2i)14
bonds,i-iowever other revenue streams may be use&The cost per household represents the average
annual impact of increased property taxes levied to pay the debt service.The estimates do not take into
account growth in the tax base due to new construction and at over the life of the brands.The
jurisdiction's officials, Financial advisors,bond counsel and underwriters would establish the actual
terms of any bond.
1"r)"wrincill, procedures
The Board of County CominissiOn must call a referendum election prior to the issuance of bone s)(1
'['here must be at least 30 days notice published in the local newspaper of general circulation." Bond
elections unav be held concurrently with any generat or priniary election."-'Bonds must be approved by
a majority of voters in the county, If any bond order fails at referendurn,then no other referendum f0'r
the approval of bonds for the sarne purpose may be called for at least six months.
Cieneral elections are held on the first Tuesday after the first Monday in November of each even
numbered year." Special elections may also be called after the supervisor of elections consents."In
any special electKin or referendum riot otherwise provided for there shall be at least 30 days' notice of
the election or referendum by publication in a newspaper of general circulation in the county.The
publication shall be made at feast twice,once in the fifth week and once in the third week prior to die
week in which the election or referendum is to be held.
Ballot Language
J'he ballot for bond referenda must be printed on plain white paper with a description of the bonds to
be voted on as prescribed by the locid government calling the vote. A separate statement of each issue
of bonds to be approved,phi-,ring the amount of the bonds and the interest rates,and "other
information necessary to inform the voters,"must also be on the ballot.'"I"'he body of the measure must
not exceed 75 words in length. The ballot title shall consist of a caption, not exceeding 15 words in
length,by which the measure is comirionly referred to or spoken of I This information must be
followed by the chokes; ':For Bonds"and "Against Bonds."16
F.S E 100,201.
I',S,fi 100 341
F-� 100031
vs joo,151
FS 101 t61
F.S.Gi 100,341,
P. CC4 rSL,WA I ON F f,jc r D V/ COPc
NA o� 4 u�, COI 'I r" C J R/Al If A I q S 111 I II II i S I U U),,,' JA,t,lur",J�Y 2015,
Property I I Ia.x
Ad v-alorcm taxes,commonly referred to as property taxes,are the single most important revenue
for local governments in Florida, funding schools and locally provided government services.
Property taxes account for approxitnately,38 percent of local government funding,. property taxes are
levied by Counties,InUmCipalitics, schools, and various special taxing authorities such as water
management and fire districts.
The"general 1-millage"is set by the governing body of the local taxing authority. Cities,counties,and
school districts are subject to a constitutional limit of 10 mills each for operating purposes. Exceptions
include"clebt service millage" and a"voted inillage" not:to exceed a period of two years, In addition,
the irtaximurn tax levy allowed by a majority vote of the governing body is based on the rate of growth
in per capita personal income in I'loricla. Ad valorem taxes may be increased at a greater rate only with
a super majority or unanimous vote of the local government governing body or a vote,of the
electorate.17
Cc)unties providing municipal services may also levy Lip to an additic)nal ten nulls above the ten mill
count'Y linntation within those areas receiving 11AL1111cipal-type services (known as 1\4unicipal Service
Taxing Units or NISTU). Subject to the consent by ordinance. of the governing body of the affected
municipality, an NISTU may Include all or a part of the boundaries of a inunicipality, Under the general
constitutional nittlage limits of 10 mills for municipal purposes, the nifflage levied by MS Us and the
InUnicipahty" may not exceed in the aggregate 10 mills.
T2'I'llc Proj)Crt� N, '11 MORrOC C,OUIVA-
The 2015 proposed riullage for countywide services is 11037 mills.The aggregate countywide levy is
3.9005. The countyF levies 0.1753 mills for tnunicipal semices provided in the Unincorporated area. In
addition, municil-mlities and special districts within the county levy their own millages on property,"
`I'lie average aggregate millage rate for Florida counties for [IN 2014--1 5 was 7.9797.19
(Jslng tfic Propertv Tax f(,.)r Park,,,; and (:)peal Spdcc
Monroe Countv's tax rate is below the
Constitutional limit of 10 mills, so,with Estimated Revenue&Costs of Property Tax Increase
regard to that limit, the county has room to Monroe County
utilize property Levy Total County Annual Cospropertytaxes to fund open space Increase Taxable Valuation Revenue SIR
purchases.The table to the right illustrates 0,03 $21,537,819,555 $646,135 $13
the revenue and cost of various millage 0.05 $21,537,819,555 $1,076,891 $21
amounts. For instance,based on the country's 0.08 $21,537,819,,555 $1,723,026 $34
total taxable value of$21.5 biffion estimated 0,10 $21,537,819,555 $2,153,782 $42
for F'Y 2015,an additional 0.05 mill increase 015 $21,537,B19,555 $3,230,673 $64
would generate approximately$1 million Sources:Monroe County Growth Mgt GIS,Florida DOR
annually for parks and conservation at a Cost Avgsingle family residential(SFR)taxable value($423,461j,as oQuly2014,
�7[�S §2CnO 065(5)and IX),185,
11 Nlonrou C'ount.v FY 2015 Proposwd l\nnual Budget,p.13-54,
MON ,I,C('iUNI` COJNS11""Vvo I u'i I Fi S I HIi l I 'i'S UDY JANfl,)Al-.'t 2(05
of roughly ily$21 a year tea the average lionleox-vner.Alternatively, Monroe County could impose a voted
trullage not to exceed a period of two years. A voted nullage is not Subject to the 10 mill cap.
The County Unincorporated Service Estimated Revenue&Costs of Property Tax Increase
District is art MSTU which also has the Monroe County Unicorporated(MSTU)
capacity to le.N'Y lip to 10 mills in the Mill Levy Total County Annual Cost/Avg.
unincorporated area of the county. The Increase Taxable Valuation Revenue SFR
table to the right illustrates the re'venue 0.03 $10,070,462,038 $302,114 $13
0,05 $10,070,462,038 $503,523 $21
arid cost of various millagc amounts, For 0.08 $10,070,462,038 $805,637 $34
instance,based on the total taxable value 0,10 $10,070,462,038 $1,007,046 $42
of prol-.)erty ill the county urruicorporated 015 $10,070,462,038 $1,510,569 $64
area of$10 billion, all additional 0.05 mill Sources:Monroe CountyGrov4h Mgt GIS,Florida DOR
increase would generate approxiinarely Avg single fanilyresidential(SFR)taxable value($423,481),as of July 2014.
$500,()00 at cost of roughly$21 per year to the average 11 omeowlicr.
"'I'm(.-tri'l ell r Proccdurcs
Count financial staff and advisors would need to determine the requirements for approval of ally
Y I
proposed increase/override in the general nifflage based oil the recent Property tax reforms. Such a
change could require either a supertnajority vote of the Board of County Commissions and/or a public
referendum.Ali increase ill the general m4lage does not represent a perinarient dedication of funds for
parks and open space purPoses.The trullage may be used for other purposes as determined by the
co tru-nis Si oilers
Avoted levy (2-year.levy') must be approved by majority vote,of the qualified c1cctors in the count),or
distx.ict-,7()tlllg Ill .in election called for that purpose. Such an election may be called by the governing
body of any such county or district oil its own motion or by citizen petition. The petition must
specify the arnourit of millage sought to be levied and the purpose for which the proceeds will be
expended and contain the sign
atures of at least 10 percent of the persons qualified to vote in such
clection.211
Mianii-Dade Counq I.,"rivirmunertually Eridarigered Land (EEL) Program
T'he Nliarni-Dade County I',tivironmenta1l),Endangered Lands program could serve as a model for a
M,o-year levy for parks and recreation in Monroe County. In 1990, Miami-Dade voters approved an
ad valorern tax of 0.075 rilills for a two-year period from 1990 to 1992 to fund the acquisition,
protection and maintenance of environmentally endangered lands. A total of$90 mrlion was raised for
land acquisition.The county established an E-nvixonnientally Endangered Land program to administer
the funds and set aside$10 million of the $90 million to Pay for Site management. Each year, the
interest from this $10 million is used tea secure,restore, and care f(-.)r the sites acquired by the E ET
program. Voters approved another$40 million in 2004 through the Building Better("Olumullitics
Bonds.
The F'E have.l,Program and its partners ha brought mre than 18,350 acres of envirciniilentallw,
endangered lands into public ownership siice 1990, Additionally,the EEL Prograrn nianages nearly
3,000 acres of natural lands Nvidlur Nfiami-Dadc County Parks, for a total of more than 23,500 acres
FS,l 200.091.
&)N,ERVA 1 Fi�,�PJ,CL DEPAr','"r1,AF_P,)I
protected.The purchase and conservation of these lands ensure that:they are shielded from
development and will continue to thrive as natural habitats.
11.1frostru,crual S1411c,s Tax
Local governments are authorized to levy several t,pes of local option sales surtaxes subject to
eligibility requirements, rate limits, and certain authorized purposes. State statutes entitled"Local
Government InfraStIUCt Lire Surtax,"allow any county to impose a sales surtax of 03 percent or 1.0
percent in order to "finance,plan and construct infrastructure and to acquire land for public recreation
or coil servi tion of natural resources."When a county levies the local infrastructure surtax together
with certain either surtaxes, the combined itiaxiniurn surtax that can be levied for all purposes cannot
exceed I percent.
Proceeds of the infrastructure sales tax Must be spent on capital expenditures and tria), not be used for
operatiomal expenses.21 ('(!)unties designated as areas of critical state concern,including Monroe
("OUnty,may rise Lip to 10 percent of the tax revenues for any PUbt1C pUf.pOse.22(:oUnrICS 111-Ay pledge
procccols for the purpose of servicing I)onds.21'rhc duration of the sales tax can be for any,period of
time specified by the final referendum measure. If the measure is adopted, the county and each
municipality receive a portion of the proceeds based on an interlocal agreement or according to a
f trilLfla provided by the state (based on the unincorporated population and the incorporated
populations of each rimincipably).21
Monroe County currently nril-,)oses the full one-cent Local Government Infrastructure Sales Tax for
physical environment,general government, public safety, and parks and recreation capital
unprovenients. In 2012 county voters extended the Surtax expiration from 2018 to 2033 with 68
percent in favoi.'rhe tax is projected to generate approximately $18 - $20 million per year."I'he coun"-
regularly bonds against the Infrastructure Sales'['ax revenue. 61-te of the existing bond packages,issued
in 2(AP,is due to be retired 1112018 freeing Up annual debt service of approxiinately $33 million to be
used for other purposes.
Infrastructure Sales Fax revenues (',an be used to finance,plan,and construct infrastructure and to
acqu re land for public recreation or conservation or Revenue Bond Financing Costs
protection of natural resources. Generally,revenues are Interest Years to AnaLial
allocated during the county's annual budgeting process Bond Issue Rate Maturity Debt Svce
to projects identified in the 5-year capital plan.The $5 000,000..
10 $647,523
county would Uely issue revenue bonds for projects $10, 5.0% 10 $1,295,046
costing more than 1$10 nrilhon.2w $15, -5,0% 10 $1,942569
$20,000,000 5�0%
$25,bbb-,666 "To%—
F,S,§212,05-5 Flori& "Viorne.Y Getieril Advisory Legal Opinion AGO-94-79,Curdicr clarifics Oiat dw tcri'n"infrastrUCILaO WOUW 11w
appear to indudc such items as fcrt6ng,mngs,lumber for bleachers and lighting fixtures;nor rmmxiaN foi lamkcapc design and irce and
,bred beery plartring I lowcvcr,hind irnprorcinem or dcsign cxperiscs that 1-Flay 16se nn Conjunction m ith a fixed cap3ui cx1iti)(1min,tar FiNed
Capkal outlay ssociated with the comtruction,rccomtruction or irnpro%cirtent of public facrEtics or vxpmdikturc foi such things as rnaflcriuls
for landscape design may be purchased with the proc(cds of dit:survax,
F.S. 212.055(2)(f),I. Those cowines designated is an arca oft:66cal siaie o oncerri which qw1ify it,u�c that sumax for any public purposc
trily use only lip to 10 pucult of&iu swriax,procectis for any pubk purju)sv otNT dmin for irifi asti ucturt,purposes aui horized b this swion
F.S, 212,055,
U,S, 21K62
Personal cornmunication kvidi Kevin Nbidok,Sr.I)iructor of' Strategic Planning,January 20,201 5.
NIONPO[ COU�'JTY CO I Is A (W)Y J/,14 U A I Y 2015
AddlWmal S'lics Ta Auth()rIt'v,
Monroe County tria.),also consider the possibility of anactiding existing statutes to add a surtax
specifically to fund land conservation efforts. A new 0_5 percent tax could be expected to generate
approximately $9 -$10 million annually for the county (roughly$,16 nuffion total),at a cost of'about
$72a year for the average household in the county,
Estimated Revenue and Cost of Infrastructure Sales Tax
Sales Annual Household Spending on Annual Cost/
Tax Revenue* Taxable Goods** Household
1.0% $31,984,658 $14,352 $144
0.5% $15,992,329 $14,352 $72
Sales Annual Total Revenue Attributed %of Revenue
Tax Revenue* to Resident Spending*** Generated by Residents
1.0% $31,984,658 $8,449,740 26%
0.5% $15,992,329 $4,224,870 26%
Wontoe County Budget Director,2/3/15
—Est.avg household spending on taxable items=25%of median household income($571408)
-Average household spending multiplied by est.#ofhouseholds in the county(58,875).
Source"hftp:11quick facts.census.gcv1q6d1states142142T9_htmli
In 2009, existing statutes were amended to add the optIO11 Distribution of Infrastructure Sales Tax
for a F,'Ire and Rescue surtax. Sorne information is EstimatedArnt 1%Tax
available about supporters,and the passing of the MONROEBOCC 59,9% $19,169,871
amendment,detailed below. Additionally,bills to amendIslamorada 6.17% $1,975,358
Key Colony Beach 0.80% $255,811
the legislation to add a Higher Education Surtax option KeyWest 24.5% $7,839,871
haver been introduced four times,however the Layton 018% $58,371
arnendirient has not pissed."llic legislative process Is Nbrathon 8,39% $2,685,377
described in Appendix I.".). Countywide Total 100%1 $31,984,659
Estimated Ani t. 0,5%Tax
Fire and Resare,4ui-lav MONROEBOCC 59.9% $9,584,935
Appro- Islamorada 6.17%� $987,679
val of this surtax in 2009 added an eighth Key Colony Beach 0.80% $127,906
discretionary sales surtax to those allowed by law under
Key West 24.5% $3,919,935
Florida statutes 212.055.21 The surtax was approved by Layton 0,18% $29,185
Senate 39-0 on April 29,2009 (S13 1000), then approved Nlarathon 8,39% $1,342,689
by the I louse 110-8 the following day (FIB 365). It was Countywide Total 100% $15,992,329
sigried into law by the(3overnor onjacne 16, 20K It Source:Monroe County Budget Director
becanic. effective July 1,2009.27 In the Senate,the bill was
sponsored by the following: the judiciary 7 (".'on-u-nittee, Military Affairs and Domestic Security
Committee, and Senator Mike 11'asano (R), In the House, the bill was spunsc>recl by the followixig�
Economic Devclopiricnt and Community Affairs Policy Council, Nfilitary and Local Affairs Policy
Committee, and Representative Ed I looper (1i).21
2014 Vlonda Statutes,"212.055 D scrcfionan,sales surtaxes;➢egisliiive intolt;-WthOfiXatiOn and use ofPro<CCLk,"
hap://t1s,e,n= 655
Florida Departfnuna of Ro,cnuc,"Florida's Discre6onary Sales Surma x"http://dor.rnY 00 fid a,com/d wr/taxes/d u-c ro u mary.h I ml
2'Vlorida I lone c of Representam,cs,"CS/C'S/SB 1000-Discretionary Sales Surtancs/1'krc Rescuc Scrmes,NO"
ht�p://wkvw,rn)floridahouse
21 I'loridl I louse of Representatives,"C'SICS11 1B365-Discroionan=Saks Surtaxes,2009"
.gov/Sec:ions/Bills,/lamlIsdetail.sspx?l3illld=4027'6&
DLPAR'N'T!I I
NAOI l C ou Y Co� I c,,Yi F I N-F i )i,),( ,L,i,4 u,,% r 20
Under the legislation,up to a I percent surtax may be imposed by any county, except those which have
uiip(,->sed two other separate surtaxes without,an expiration date. Like the other surtaxes, the Fire,and
Rescue surtax must be enacted by ordinance of the county, commission and approved by a referendum,
(-(Train actions must-be taken before the surtax may be put In place,and once in place,ad valorem
taxes must be reduced equal to the estimated amount of surtax collections. A calCLilatioii clone 'ill June
2009 estunated that if all,65 eligible counties (Nhanui-Dadc and Madison were not eligible)
unpletilcrated the surtax it would generate $2.2 bilhon annually,29'I'lle Fire and Rescue surtax has yet to
Ile implemented by a Florida county.
1-1cgber Education Suda:,c
Four bills, the most recent during the 2014 legislative session (I 1B 113),have been put forth proposing
an arneridnient to Florida statutes 212.55 to add a Iligher Education surtax as a nintli discretionary
sales surtax option.'I'lic proposed change WOUld allow tip to a 0.5 percent higher education surtax for
five years to benefit the Florida College Systern institution and state university in the county, Only
Miami-Dade:County would qualify at first;Monroe County and I lillsborough Count),may be eligible
in tile future."I'lle surtax would raise an estimated $234.7 milh011 annually in Miatilti-Dade Count,v.
The 2014 twill was sponsored in the House by the Education Committee and Representative Erik
Fresen (R,Dist. 114).11 In the Senate, the Appropriations Subcommittee on Finance and Tax and
Senator Anitere Flores (R,Dist. 37) co-sponsored the bill.32 Both bills died in May 2014.
Special, F)istricts
Special districts are a political subdivision in the state created to provide limited government on a local
level-There are more than 1,600 special districts in Florida providing local infrastructure and services,
such as water and road management, fire rescue and safety,health care services,Community
development,housing and parks. Many special districts may impose property taxes,assessments,or
impact fees. F-Inabling legislation of some special districts authorizes them to issue bonds,payable froill
taxes or special assessments, to finance capital improvements after a rnajority of the people living
within the special district approve a bond referendum. Sonic special districts have the authority to issue
a bond without a referendum. Districts are also eligible to utilize tax increment financing,charge tolls,
and apply for grants.
There are several types of special districts in Florida that. provide park and recreation opportunities.
p
For instance,comMUllity development districts (Cf)Ds) are special taxing districts that property
owners froth a defined area may establish by voting to levy a tax or assessment in support of public
improvements to the area in which they Eve. CDDs also Issue bonds,111'lie state also authorizes
counties to create a special district to implement a beach and shoreline preservation program.The
board of county commissioners as the governing body of the district may levy a uniform ad valorem
tax not,to exceed I mill per year on all nonexempt taxable property within the district for a period of
Z"Ro'cnUe F's6rila(in g,Confercnce,"Tiv bxal()Ixion I)u,wrc 6orciry SuoAx,"6/4/2009,
vi Reventw Estimating Conference,"Tnv Salc and Uw AAx,"1/17/2014,
hivp://Ldr stalu A us/('mil L,nr/co n(c rvn(v,/rce%v imimptict/arc hives/201 4/pd f1p ige68-69 pdf
Florida I lotisc of "CS11 Ili 113 Discretiortaq-SaIcs Smiaxes,2014"
51229
Idmida I lose ofRvprc cntarwcs,N,'S/Sli 66-Discrctiomr),Sales Surtaxes,2014"
Ill rp�//",\vkv"))�llori(hi I low c.gov/S(c tw tl s,/lid k/bAlsdo ail,asp-.,t lid I I d—51087&
FS.Cy 190.02 1(1).
lif 0 N,"F R',/A T Nt I J/,, C:E 1 vi�,Y,l
MONF',0 I C�CJJN'TY "Y S TUD'I J/,NUAWY '015
not more, than 2 years to defray organizational and administrative costs of said district. In addition, the
commissioners may levy upon all taxable property withhi each district ,in ad vak)tern beqfils tax in any
arnount necessary to meet the requirements of the prograrn. This tax is levied in proportion to benefits
each property will receive.
At present, there are 13 existing special district in Monroe Count-'V that provide services including
wastewater, mosquito control, fire and rescue, hospitals,and redlevelopment.1-47lic Monroe County
Land Authority is discussed In more:detail on page 8.
The South Florida Water Matnageirnew District
The South Florida Water'Managernerit District (SFWMD) oversees water resources in the southern
half cif Florida. The district cornprises sixteen counties, from Orlando to the Florida Keys, servinga
population of 7.7 rnillion resident". This, area encompasses two major watersheds—the Okeechobee
Basin and the Big,Cypress Basin--which are, in part, separately managed and funded. Berne revenue is
used fi.)r district-wide capital n-tiprovements, while other revenue is directed to basin-specific,projects.
("reated in 1949, the South Florida Water Management District,is the coldest and largest of Florida's
five water niariagenilent districts.The district',,,rtiisslon is to manage and protect water resources
through water quality, flood control, natural systen-is and flood supply.
Nine Governing Board members direct the district. The board InClubers are volunteers who must
reside within district boundaries, "I"hey are appointed by Florida's Governor and confirmed by rhe state
senate for four-year terms.There is also a separate Basin Board for the Big Cypress Basin.The.
Goverritig Board appoints,and the state senate confirins, the district's Executive Director who directs
A district activities.
The district has legislative authority to collect ad valorem taxes from landowners throughoult its
jurisdiction.The maximum rate the district may collect.is 0.80 mills,of which up to 40 percent may be
used for district.wide projects,and Lip to 60 percent inay be used for basin-wide projeCtS,3-9 These
property taxes and other sources including federal,state and local reVelltie, licenses,permit fees,grants,
agricultural taxes,investment income ,And bond proceeds fund the district's annual budget.
The annual budget for FY 2015 is $720.4 million. Nearly 80 percent budget is dedicated to restoration
and operations and maintenance Therolled-back combined trifflage rates for the SFWNID represent
538A2 per$100,000 of taxable value in 15 of the District's 16 counties (the Okeechobee For Collier
County and rrnainlarncl M.)nroe County (119e Big(ypress Basin), the rolled-back combined rate represents
$30.97 per$100,000 of taxable valuc.36
To fund projects,the district often partners with federal and state governtrient,local counties, and
municipalities. Partnerships are also made with local utilities and drainage districts. Acdvilles regulated
by the district include projects such as drcdgc and fill with impacts on wetlands,use of district lands,
canals, streams and aquifers,drainage system c(:)nstructi(..)n or operation,and well construction.
ktps.//dca d co.mOoridaxi nYI/nx'd/sdq)/(MIC A aH Jmdco/at)cbscmmcfnl
t,S, p(tq.
fill I O'M gnd.gm/lit vr I aVpap,/poll al/.,,re po�'j ao ry/s, ,N-Tnid_rep)%it ory pdf/itLC 2015 final budget approvaLpelf
D r:�
Ti�,A�Finy-
The district also "acquires,manages,and restores lands for the conservation and preservation of water
resources as well as for the ancillary benefit Of"PUblic recreation.1117 However,most of the
conservation and preservation initiatives the district has Pursued in the past eight years have been
directed towards its ["Verglades,restoration work. If the district could be convinced to dedicate some
funding towards Other COUTItV Of Municipal projects,it could be a good partner for park-building and
open space conservation in Monroe County due to its reliable funding.
Creating as nevv slu-ci.,t] district
Florida municipalities and counties are perimned to create special districts for recreation and
conservation services. This aUdlOrIty may be applied by counties only in the unincorporated are,,m3l,
Such districts may acquire land,collect fees and issue bonds. Monroe County could potential]),create a
new district,such as a recreation district or a beach and shore preservation district.711 I'lic governing
board of the latter district is the county BOU.",whereas a recreation district may be governed by tile
or by an independently elected board. E,,ach Of thesc districts has the ambority to levy,property
taxes and to acquire land.
One of the advantages to creating;a district is that special districts provide highly specialized local
governmental SCrNriCe, - often in rcqpoiiw to citizen demand- that:a municipal-ity,or county is unable
or unwilling to provide. Special districts provide for a local special-purpose governt'nental agency with
funding,ernployment,and missions separate from local general-purpose government. I-lowever,
Monroe Cotinty currently has the capacity and administrative SArLICtUrCS ni place to provide parks and
conservation services. As such, the beirefits of having a separate ctitity would have:to be weighed
against the additional steps needed to create and fund a new district.
tr 2010 Comprehensive AMILN: Ftiscat Report m I 3,,avaihblc ol
taa F.S.ty 418.20 and F.S.;101.25.
J,.&�161.25
I ot,d Fr,,s�f,,,,i fri,Sw,[)), JANU/4.0,2015
171.1ection I listory,
Since most local public finance mechanism,,require voter approval it is useful to look at election
history for the county. A review of the Monroe County election canvas record of the past few years
indicates that there have been few major county finance propositions before voters by which to gauge
current voter attitudes toward public spending measures. Results of those measures, voter registration,
and turnout are summarized in the tables below.
Monroe County Voter Turnout Monroe County Voter Registration
Election Registered Voters Ballots Cast %Turnout Party Registered Voters %
Aug-14 50,587 13, 27% Republican 18,704 37
,524 39,142 r 76% Democrat 16,527 33
Aug-,12 48,670 14,866 i 31% lnde /Oih;r"! 15,473 i 30
13,462 27% Total 51,104
Public Spending Election Results(selected examples since 2008)
Date Measure Description Results Yes
Nov-14 Sales Tax Renew 1/2-cent tax or county schools Pass 64%
Nov-1 2 t�e!,d 1-cent infrastructure sales tax a�� 68%
-5 mill levy for county schools 7 5`X,a n-1 2 _Ln_ new 0
n-08__ Levy Rene I w 1.,0 1.5m,i I I-I-eyy for county schools 176%
1 LlIf "(11 t S,11CS T,'AN R(III(AV21
With the expiration of the existing half-cent sales tax occurring on Dccenibcr 311, 2015,the
County School Board proposed a renewal of this levy for another ten year,,; to upgrade and address
security needs at school facilities equip schools with modern technology,construct new facilities,and
provide for renovations and additions to existing school structures.This renewal was approved by
voters of Monroe County at the Noverriber 0,election.
Any park and land conservation program in Monroe County must rely on a conibination of funding
sources to sustain Land acclInisition both it) the near term and over the long run.The county has several
finance options to generate significant:dedicated funding for parks and open space at relatively low
cost to taxpayers. Once target properties have been identified ft!)r conservation or conversion to parks,
further discussion of the funding mecharnsins described in this report is recommended to match the
most viable sources with the needs. Public opinion polling could provide insights to the political
feasibility of mechanisms requiring voter approval,
i I I I I f", I I - -PAR"I WN T
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Land Area Density
Population square population per
Area(Incorporated shaded) 2010 miles square mile
Village of Warrorada 6,119 7.2 850
City of Layton 184 0.07 2,629
City of Key Colony Beach 810 0.44 1,841
City of Marathon 8,287 9.1 911
Cary of Key West(New Town,Old Town,Stock Island) 29,550 7 4,221
Key LargolTavernier/Ocean Reef 18,872 35.4 533
Long Key 131 1.8 73
Chuck Key/Conch Keys 621 0.6 1,035
Big Fine Key/No twtarre Key 4,284 12.04 356
LitRe Torch/Middle Torch/Bug Torch Keys 970 51 187
Ramrod Key 688 1.67 412
ScumTerland Key 944 1.7 555
Cudjoe Key 1,763 6 294
Sugarloaf Key/Saddlebusnch Key 1,948 16 122
Bug CoppitVRocktand/Geiger/Shark Keys 2,747 2.6 1,057
Bahia htondalScout Key/Boca Chica Key/Dry Tortugasl'Baltast
Key/Cooks Wand/Knock-errs-Gown Key 163 8.03 20
Florida Keys Totals 73,081 114,85 636
Mainland Monroe Totals 9 833 0
Source:Monroe County Growth Management Dvisuon,Florida Dept.of Health;http,llwww,floridaheakh.gov/provtder-
and-partner-resources/corrrriunity-par'tnershipsIf lorid'aneppastate-and-cornnrenity-repor'tshmnroe-
countyl docun-ents/rnonroe-cha.pdf
P„;r,rl I_I .;mb.i.iE_ull�n,a,r,rl',i II a.:�rilnl.rv,d, '9
F L A^ IUH I I(S FUDY JA m)wrvv 2015
Appendix B: Flotid,eJ ("Anin.ty Nleasure I Iistory
Florida County Conservation Finance,Measures -Approved by Voters 20,00-2013
Finance Total Funds
Jurisdiction Naine Date Mechanism Purpose Approved %Yes-
Alachua County, Nov pp 'Bond O space waildlrfe habitat
5291100_020,00 i 61%
..........AJaCh"U'a'66u"n't'y Nov-08 'Sales tax Open space, parks,recreation $40,000,000i 51%
reward Count. . Nov-04 'Bond W$60,000,0 � 69%
..........
'Parks,watershed protection,wildlife
Broward County Nov-00 i6ond ihabitat, open s2ace $400,000,OW 74%
Charlotte Cou Boni. Open.sp $77,000,000" 5311%
...........
qpfl er Co ..............
Nov-02 'Bond 0 e i_s 0
59%
................
�Collier C Nov-04 !Bond 'Parks and recreation $40,000,000 73%
Open space, watershed protection,
q..q.I.lj,erq C,o,u,9,t,Y_. Nov p6 Property taac *Wlife habitat, recreation $123,000,000: 82%
Fla fer County.... __Nov-02 iBond atershe p 7 74%
�Open space, parks, recreation,wildlife
Flan lei Coum�t v pd P
ropertyja? Jhabitat, waters bed protectmron $40,00 0,000 65%
............
ffq!sboro '0 .0 qqqrrty_, L_j4ov-08 iBond $200,000,000�
...................
Indian River Cou �0 en sp nt,yr ov-014 Bond $50,00 0,066",
Lake CoGmnt Nov-GI 'Sales tax ',Parks $30,000,000 63%
Y.
NGv-04 Bond
............. 00,0OW 71%
;Open space, watershed protection,
Leon Count Nov-00 Sales tax recreation $728X0,000' 60%
...................................
;Open space, parks,wildife,watershed
jvaqi I C Nov-06 $60,000,00W 56%
taXI11IIJK9i�c!ion,trails
Miami-Dade County Play-..0..4.... Bond Parks
recreation open
n spa.ce..... ......-$68.0.....2....58
,000 66%
Miami fade Count Nov-04 Bond ears ace. recreation 255,070,00W 58%
.Vialmli.- lade-County Nov-04 'Bond .Open , 92,0 65%0_jqq!e� recreation $552 6
Open space, watershed protection,
Osc eola County.,,, Nov-U Bond vwildfife habitat, recreation $60,000,000 67%
.....Now
.... ........... .............
Pal-in 8'e"a each*County Nov-02 !Bond arks, recreation, open spare $�V,0,06 6'�'0'0 0"........... %.................
.......... , ...........
,Open space, recreation,watershed
�PaIrn Beach Cqynty ' Nov-04 [B protection $60,000,000 68%
..................... _ ,
....... .....Pasco County Mar-04 �Sales tax Recreation,wildlife habitat 520%
..........
Nov-12 'Sales tax Open space parks, recreation $502,000,0001 70%
..............-
Sarasota COUn.ty.. . .....ro t Nov-05 I.Pr9p $170,000,000i
80%
......
.................7 81')1'(6....................
......................................
Sarasota COU] Bond Rp
eq,space, recreation $25
Sernincle County Nov-pp Bond !Open space, wildlife habitat $25,000,0001 58%
§il ki-c-Te Count".............................fq,ov 0 2 Property tax, Parks opeo,«p recreation 52,%.... ..................
'Watershed protection, mrildlife habitat,
Itly-LO 'Bond recreation $40,000,000: 61%
Total $4,832,120,000
lSourre,-Trust oar Pumic Land, LandVote database accessed 1012114
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Appendix C,: County R(weriuc (-)ptions Stli-n-t-liary
Option Description and Generating Potential Process Comments&
Considerations
General The county could issue goicial obligatioti bonds to support pirks Nlabority voter approval is Bonds raisesubqaiittal
Obligation AM]open space[purpo,e,,,,. For e.xainph.,,,a S15 N1 bond couki be icquirc.d. wiiourits of irumie'y,enabling
Bond issued ata cost of roug e arag hly $22 per year to the, the coutity to Make irIlpottaltl
homeowner. acquisitions r ow while land is
availabit.Costs would be
1,3011d Usue, OehtSmue Ta,%-,Rrw V App. Hou.r,e Spread out over-a lotig tiale
SIO irtilliotl S735,818 (YAM SH horizon,and therefore are
Sl 5 1-11iflioll S1,103,726 0.055 $22 bowie by
%�both currew and
fLMIN b(meficiaries.
The debt service.figures for the proposed bored i,,;,qies above are
based upon a general obligaum bond issued for 20 years-,at 4 llorid funds tiiay nett be Used
percent illtelest. This rate is oilly used for iflustratioti. C"OuIltv for 111airiterlatIce am]
officials,its finamial advisors,board coullsel arid cmderwriters OpenMoru,
would establish the actual terins of any boii(l issue.
..................
Property Tax Monroe(:Courtry could raise revenue for parks,and operl Space Aii extraordinary(2/3rds A tnillage inctcase would
(ad valorem) acqUisitioti by iiicrca.,ang the,cowity propcvty tax rates for that or uirariirriotis)Vote of create a sig1tificarit furidmg,
purpose thr(nigh a goicral ir)illage illclease(11.1 Volud htvy. the Cmull) source for packs,and
;ojlullissiortcrs of a COIISCTVatiOrk that COqild bC
refcruiduni imy be us
Rale lwr Year 4a I U011a
used for acquacquisitionas well as
T(T%, Rewgffe,ltlixed 41111aal("Os/liw required. veloptnem atid inain ritearice
-
0,03 S6,16,135 $13
(W5 $1,076,891 S21 A getieral kwy is not
'S423,481,average single fainfly resielciaid value. pernaaently dedicated to a
specific purpose. A voted levy
may he illuposvd for twa a ye-ars,
orkly.
MSTU or N1011rOC County could an additioteal proper-ty tax iii the Ail extraordirlary(2/3rds A rninage inctcase III the
Special L11Ii11C0r:T)OrUCd area to support parks and coriscrvatim. or utimirnous)vote of utiinu..orporated area gmerat"
District the Coutltv sigrllificarltly less revenue thill
Colnint' rs,sst4 nie or a a coutirywide millage iticruase.
Property rax Tel�v Rgvelaue&sis,td Allawal C).,tj r refereridulki I11a.V be
Rate, per 11yr At m I fouse rcquired. Procce(h,inay he uwd to foi-tcl
ON 5 S�503,523 S21 ongoing;expenses ass well as
capital Itivestinerits,
fON F,W�Nlr F
t00WROF C01,A4 FY' CO�,,ISFFs VA Tiofi FcF,S,0,URY STi I DY J A t 111,)A P�2 0 15
Al'),pendix 11 Floricia Legislative Process"'
The Florida Leg islature meets once a year (ifs for days,typically beginning the first Tuesday in March.
Bills are filed by Representatives and Senators for consideration during the session.When a bill is filed,
it is referred to several conintittees to be reviewed by smaller groups of members.'I"Inrough the
committee process, the bill is discussed and debated and amendments or changes can be added to the
bill. Interim committee meetings begui in November through February of the following year.
After passing out of coniniflices the bill is brought before the entire chamber of the I louse and Senate.
Committees have several options when considering a bill. They can approve the biU.'I'hey can defeat
the bill Or they can choose to amend the b11 If as bill is defeated in corrunittee, that:idea is dead for
the rest of iession.
Once the bill has passed each of the committees to which it is assigned, it is available to,be voted on by
the entire body of members.A bill passes by receiving a majority of the votes in that:chamber. Hach
bill must be passed by both chatribers before it becontes a law.
If both chambers approve the bill,it goes to the Governor's office. "I'lie Governor can sign the bill,
allow it to become a law Without his Signature or veto the bill. If the Governor chooses to veto a bill,
the Leg"slaturc can overturn the next time they meet by a two thirds vote of both chambers-. If a bill
doesn't make it all the way through this process before the end of session, that bill dies and must begin
the process anew the next year.
2015 SESSION DATES
August 1, 2014 Deadline for filing claim bills(Rule 4.81(2))
January 23, 2015 Deadline for submitting requests for drafts of general bills and joint
resolutions, including requests for companion bills
February 25,2015 Deadline for approving final drafts of general bills and joint resolutions,
including companion bills
March 3, 2015 Regular Session convenes(Article 111, section 3(b), Constitution)
March 3, 2015 Deadline for filing bills for introduction(Rule 3.7(1))
April 18,2015 All bills are immediately certified(Rule 6,8)
April 21,2015 50th day—last day for regularly scheduled committee meetings(Rule 2.9(2))
April 27,2015 Conference Committee Reports require only one reading(Rule 4,5(1))
Motion to reconsider made and considered the same day(Rule 6.4(4))
May 1, 2015 60th day—last day of Regular Session (Article III,section 3(d), Constitution)
tlii.p III
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LOW any LFWAMIS or iyx)rc inknivahm jAcase munct:
Wendy Muzzy
Cc,nservadon F"itiance Program
Director of J"eat:ibihtv Research
'T'he Trust for Public Larid
Office: 206-2741-2914
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Goal Criteria Criteria Weights Data Data Source
(Description,Date
SignlNcant Constraints
Submerged land 50 Submerged Lands Munroe County
............. .... ,. .... .._ ..... ...........6TP(irrodde....,a..,.... ...... .._.
ntal Take Permit)for marsrr 50% Marsh Rabbit Focus Area Munroe OJUnty
rabb&t habitat
Total 1100%
Conservation Priorities
Upland native habdtat '15% Land Cover HvInsat Monroe County
Tu it t Assessments 20 4 Tior Assessment Monroe County
Welland type,degree of disturbance 10% Welland Habitat Munroe County
('if known),and extent Land Cover Nabtat
Species Focus..Areas to% Combined Result from Species WVeighhng TPL
........ ...w
,.fever Rice RM FOCLIs Area 500rn Buffer
Species Focus Areas buffer areas 101a Cotton Mouse Focus Area 500m Buffer Monroe County
Florida Forever Project boundaries 20% Florida Forever Acgwstiorrc Monroe County
and Essenlual Parcels Rema'oning Essential Parcels Remaining
FEMA CBRS areas 15% FEMA CBRS Monroe County
Total 100%
Development Compatibility
Tier ll and MIA Assessments 15/. Tier Overlay Monroe County
"Tier III A,+xsessrnerrs 10%
Canal frontage 1 DI. Canal Fromage Parcats Monroe County �...
FEMA Wzones 20l FEMA Vzones Monroe County
Clear Zones 2D'/,, Clear Zones Navy or TPL digitize
AICLIZ r 55 ONL. 2% Navy or TPL digitize
Infrastructure facilities 51,'1, Street Centedines Munroe County
Potable Water Mains
Total 100
Sea Level Rise
......................W.
Sea Level Rise 1°orgreater SLR Monroe County
Total 10 �
Species Weight
Caretta Caretta Critical Habitat (loggerhead turtle) 5%
Cape Sable Thoroughwort Critical Habitat 10%
Cotton Mouse/Wood rat Focus Areas 15%
Eastern Indigo Snake Focus Area 5%
Key Deer Focus Area 10%
Lower Keys Marsh Rabbit 15%
Schaus Swallwtail Focus Area 10%
Sliver Rice Rat Focus Area 10%
Silver Rice Rat Critical Habitat 10%
Tree Cactus Focus Area 5%
Tree Snail Focus Area 5%
100%
Tier Overlay Weights
Tier 11 50%
Tier IIIA 50%
Total 100%
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