Item F5
BOARD OF COUNTY COMMISSIONERS
AGENDA ITEM SUMMARY
Meeting Date: February 17. 2000
Division: Growth Management
Bulk Item: Yes
No _X_
Department: Plannin!L-
AGENDA ITEM WORDING: Consideration of the Potential Affordable Housing Sites in Monroe
County report and direction for implementing the Monroe County Board of County Commissioners
(BOCC) , s Affordable Housing Action Plan.
ITEM BACKGROUND: The BOCC approved of an Affordable Housing Action Plan at its November
10, 1999, meeting in Key Largo. The first part of the action plan directed the Planning Department to
prepare a Memorandum of Agreement (MOA) between the County and the Department of Community
Affairs (DCA) that would allow the County to receive credit for those affordable housing units that were
counted in ROGO and could be lost due to the removal of lower enclosures. On December 27, 1999 the
DCA signed this MOA, thereby enabling Monroe County to add 90 ROGO credit units to its year 8
allocations. These 90 'ROGO exempt FEMA units' will serve as the foundation for the BOCC
Affordable Housing Action Plan. The second part of the action plan directed the Planning Department to
identify potential suitable sites for the construction of attached affordable housing. The action plan also
calls for the County to do the following: allocate these units proportionately to the Upper, Middle and
Lower Keys; begin with a development in the greatest area of need; and, ensure that the first of the
developments be contractually obligated in the first quarter of 2001.
PREVIOUS RELEVANT BOARD ACTION: At its November 10, 1999, meeting, the Monroe County
Board of County Commissioners BOCC directed the Monroe Planning Department to develop a report on
potential affordable housing sites in Monroe County.
STAFF RECOMMENDATION: Approval of Report & Direction on Implementation
TOTAL COST: _None
BUDGETED: Yes_NtA_ No
COST TO COUNTY: _None
APPROVED BY: County Attorney _X_ OMB/Purchasing _Nt A_ Risk :ryIanagement _Nt A_
~l~ '/
DEPARTMENT DIRECTOR APPROVAL:
DIVISION DIRECTOR APPROVAL:
DOCUMENTATION: Included _X_ To follow _ Not required_
DISPOSITION: Agenda Item #: 2~fS
MEMORANDUM
TO:
The Board of County Commissioners (BOCC)
FROM:
K. Marlene Conaway
Planning Director
RE:
Direction on Implementing the BOCC's Affordable
Housing Action Plan
DATE:
February 7, 2000
· At the November 10, 1999, Board of County Commissioners (BOCC) meeting in Key
Largo the Board adopted the BOCC's Affordable Housing Action Plan.
· This action plan establishes criteria for the construction of low cost, attached
affordable housing rental units the "90 ROGO exempt FEMA units"
· Representatives from the Planning Department, Land Authority, Monroe County
Housing Authority and the Monroe County Housing Finance Authority have met
and reviewed the action plan.
· Due to feasibility concerns with the action plan these agencies suggest that the
requirements of the action plan be reconsidered by the BOec.
Proportional Allocation
· Staff is directed to find in each of the upper, middle and lower keys "a suitable zoned
site for affordable housing - with each geographically designated parcel to be
planned as the recipient of one third [30/30/30] of the coming permits.
· Due to Marathon's incorporation the 90 units could be divided as follows: 40 units
Upper Keys; 10 units Middle Keys and 40 units Lower Keys.
· However, developments need close to 100 units to have a public-private partnership
in developing rental units for low and very low-income households.
· Under the current ROGO system, there are only 69 affordable housing ROGO
permits left in ROGO [Attachment I]
· If the Board wants a private developer to build units for low and very low-income
residents, it will likely need to allocate all, or most of the units to one large
development.
Area of Greatest Need
· Staff is directed to "identify a suitable parcel or parcels of land in each of the three
areas of the Keys (Upper, Middle, Lower), " and "put together a financing package to
allow the projects to begin, starting with the area of greatest need. "
· Documents from the Monroe County Housing Authority and the Multiple Listing
Service indicate that the greatest need for affordable housing is in the Lower Keys
and this need lessens as one moves up the Keys.
· If the Board wants to apportion the units according to need then more units should be
directed to the Lower Keys.
Timing & Affordability
· Staff is directed to ensure that the "first project [is J contractually obligated in the
first quarter of 2001," and to pursue "multiple unit projects with monthly housing
unit rents between $500 and $800."
· State and federal funding will likely be necessary to allow a private developer to
build affordable units renting for "between $500 and $800".
· Applications for these funds are only accepted once a year, the deadline for this year
is March 8, 2000.
· If the Board wants to achieve most of the objectives in its action plan it should create
a more flexible timeline.
· Private developers would be in a better position to provide rental units for low and
very low-income residents if they build mixed-income developments.
Recommendations
1. Divide the bulk of the 90 units between the Upper and Lower Keys
2. Provide more of the "90 ROGO exempt FEMA units" to the Lower Keys
3. Direct the Housing Authority to establish a new timeline for the action plan
4. Allow the "90 ROGO exempt FEMA units" to be used for a mix of very low, low
and median income housing to make public/private partnerships feasible
5. Set aside market allocations to be used in conjunction with the "90 ROGO exempt
FEMA units" so that developers can build mixed income housing developments
Remaining ROGO Allocations for Monroe County
Through to July 13, 2002
(Attachment I)
~ The following information applies to the number of residential dwelling permits that can still
be issued in Monroe County under the Rate of Growth Ordinance (ROGO). ROGO is a
system whereby residential allocations are apportioned between the Upper, Middle and
Lower Keys (ROGO sub-areas) as per the Monroe County Year 2010 Plan (2010 Plan).
~ Currently the Monroe County Code and 2010 Plan direct Monroe County to allocate 20% of
its ROGO allocations in each ROGO subarea to the affordable housing category and 80% to
the market rate category. Existing regulations allow affordable housing allocations to be
awarded by borrowing from BOTH the future and market rate categories.
~ The Department of Community Affairs (DCA) is currently reviewing DRAFf Monroe
County Code and 2010 Plan language that will allow Monroe County's Board of County
Commissioners to adjust the percentage allocation of market to affordable housing on an
annual basis, by up to 30% greater than the current 20% allocation for affordable housing.
~ The DCA signed a Memorandum of Agreement between itself and the County that enables
Monroe County to add 90 ROGO credit units to its year 8 allocations. These 90 'ROGO
exempt FEMA units' will serve as the foundation for the BOCC Affordable Housing Action
Plan. Monroe County is establishing a program for identifying and replacing on a one-for-
one basis additional lower enclosures used for affordable housing.
~ The number of remaining ROGO allocations is based on the assumption that substantial
progress is made on the County's 5-Year Work Plan. If such progress is not made the
number of residential dwelling permits can be reduced by up to 20% for each ROGO year.
Lower Keys
Unincorporated ROGO Units Remaining
166 market
44 affordable
17 market
12 affordable
Upper Keys 114 market
*13 affordable
*The # of remaining affordable ROGO allocations is low because the Tradewinds proposal has borrowed from future
allocations in the Upper Keys.
Middle Keys
TOTAL Market = 297
TOTAL Affordable = 69
Preliminary Estimates of Marathon ROGO Units
*City of Marathon 57 market
23 affordable
*The actual number of ROGO allocations for Marathon will be established by a tri-party agreement between the
DCA, Monroe County and the City of Marathon..
Monroe County Planning Department
February, 2000
Potential Affordable Housing Sites in
Monroe County
A Component of the Monroe County Board of County Commissioner's
Affordable Housing Action Plan
Prepared on:
January 31, 2000
Prepared for:
Monroe County
Board of County Commissioners
Prepared by:
Monroe County Planning Department
TABLE OF CONTENTS
Overview
2
Site Selection Process
3
Criteria for Site Selection
4
Explanation of Site Evaluation Matrix
5
Additional Considerations:
Marathon
Partnerships
Suburban Commercial & Mixed Use Zoning
7
7
8
Conclusions
8
LIST OF APPENDICES
1. BOCC'S Affordable Housing Action Plan
II. Potential Affordable Housing Sites Evaluation Matrix
m. Maps and Air Photos of Potential Sites
OVERVIEW
Monroe County needs more housing units that can withstand major storms, are close to
employment centers and are affordable to low and very low-income residents. The Board of
County Commissioners, Blue Ribbon Committee on Affordable Housing, local government
agencies and members of the public are working together to build these much needed units.
At the November 10, 1999, Board of County Commissioners meeting in Key Largo, the Board
adopted the BOCC's Affordable Housing Action Plan. This action plan calls for the
construction of attached affordable housing using residential units made available through the
removal of below base flood enclosures that were counted in the hurricane evacuation model.
Since this meeting a Memorandum of Agreement between the County and the Department of
Community Affairs (DCA) was adopted addressing the potential loss of affordable units within
illegal downstairs enclosures due to the implementation of the County's Flood Insurance
Inspection Program. As per this agreement, the County will issue ninety (90) ROGO awards
'ROGO replacement units' for affordable housing to its ROGO Year 8 allocation. Should the
County provide additional evidence acceptable to the DCA that more than 90 downstairs
enclosures are removed subject to the County's Flood Insurance Inspection Program, then the
County and the DCA will adjust the number of 'ROGO replacement units' appropriately.
Potential Sites for the BOCC Affordable Housing Action Plan
Page 2 of 8
SITE SELECTION PROCESS
The site selection process is based upon direction given to the Planning Department by the Board
at its November 10, 1999, meeting in Key Largo. The BaCe's Affordable Housing Action Plan
calls for the construction of affordable housing units using residential units made available
through the removal of below base flood enclosures that were counted in the hurricane
evacuation model (Appendix I).
~ Review of existing documentation on potential affordable housing sites
· The Planning Department's Potential Affordable Housing Report (5/7/99) was
distributed to the Planning Commission, the Board of County Commissioners, the Land
Authority, the Monroe County Blue Ribbon Committee on Affordable Housing and
members of the public.
· This report focuses on vacant properties zoned Urban Residential.
· The Urban Residential (UR) zoning category allows for the building of up to 25 units per
buildable acre [Buildable acreage = total acreage - (open space + setbacks + buffers)).
· The maximum net densities for affordable housing at the Marathon sites provided in this
report's evaluation matrix should be used in place of those in the earlier report, since the
maximum net densities for these sites in the earlier report are underestimated.
~ Researched the potential of additional sites for consideration
· In addition to those put forward by the Planning Department in their earlier report,
properties zoned Mixed Use (MU) and Suburban Commercial (SC) were reviewed
(Appendix II).
· The Mixed Use (MU) zoning category allows for the building of up to 12 units per
buildable acre.
· The Suburban Commercial (SC) zoning category allows for the building of up to 12 units
per buildable acre if the units are accessory units to a commercial function.
· By examining MU, SC and UR sites, this report is to provide more options to consider in
terms of building affordable housing units that meet the requirements of the BaCC's
Affordable Housing Action Plan.
Potential Sites for the BOCC Affordable Housing Action Plan
Page 3 of8
CRITERIA FOR SITE SELECTION
In order to be considered as a potential site for the BOCC's Affordable Housing Action Plan sites
were reviewed according to the following criteria:
· In unincorporated Upper/ Middle (including Marathon)! Lower Keys;
· Vacant, or underdeveloped sites large enough tracks of land to accommodate affordable
multi-family housing (4 or more attached units);
· Currently zoned to accommodate medium to high intensity uses (commercial and/or
residential) permitted under existing zoning category;
· An acceptable Level of Service along USl (level of service ofC or higher);
· Close proximity to Compact Community Centers (as defined in the 2010 Plan Technical
Document 2-100) - thereby, reducing residents of these units dependence on automobiles
and the number and length of trips along US 1; and
· Medium to low intensity environmental sensitivity, except for those sites already zoned UR as
such sites are recognized by the State and the County as appropriate for high intensity
development.
Potential Sites for the BOCC Affordable Housing Action Plan
Page 4 of8
EXPLANATION OF SITE EVALUATION MATRIX
The attached matrix evaluates each of the potential sites that meet the criteria for site selection
(Appendix 11). Details on the evaluation methods used for evaluating potential sites are provided
below. The footnotes of the matrix provide additional explanation of the layout and criteria used
in the matrix.
Size and Density
The combined effect of various factors imposes minimum density and size limits on the sites to
be considered as part of the BOCC's Affordable Housing Action Plan. High construction and
land costs, environmental restrictions and other limits on development all drive up the cost of
developing affordable housing in Monroe County. Economies of scale for affordable housing
developments need to be realized to counteract these high costs. Therefore, the sites included in
the evaluation matrix are large enough to accommodate at least four attached affordable housing
units given their current zoning.
Environmental Sensitivity
Monroe County biologists reviewed a number of sites for possible inclusion in the evaluation
matrix. Sites that contain hammock and/or substantial portions of wetlands are considered highly
environmentally sensitive. Sites with mature hammock contiguous to other hammock and/or are
primarily wetlands are considered very high. Sites with environmental sensitivities of high to
very high are not included in the potential affordable housing sites matrix since their
developmental potential is low under the Monroe County Year 2010 Comprehensive Plan (2010
Plan). However, since sites zoned Urban Residential are recognized as appropriate sites for high
density residential development by the State and the County, a high to very high environmental
sensitivity ranking does not exclude them for consideration in the matrix. The environmental
rankings provided in the matrix are explained below.
. Very Low:
Scarified/exotic vegetation
Disturbed lots
. Low:
. Medium:
Disturbed with some native species and/or wetland association
Potential Sites for the BOCC Affordable Housing Action Plan
Page 5 of 8
Supporting Documentation
Existing reports, letters and other background research on potential sites to include in the matrix
were used wherever possible. The Planning Department staff reviewed its data sources for
additional information on sites lacking documented background research, as was the case for half
of the matrix sites. The data sources reviewed include the following: 2010 Plan, property record
cards, building permits, zoning maps, existing condition maps, habitat maps and air photos. The
supporting documentation rankings provided in the matrix are explained below.
. In-House:
Research conducted using maps and documents readily available to the
Planning Department
Research includes the first category and an additional site visit by a
Monroe County biologist
The site's characteristics are documented in detail within the Planning
Department's Potential Affordable Housing Report (5/7/99).
. Site Visit:
. Report:
Y Zoning maps and air photos of the sites are provided at the end of this report (Appendix III).
Surrounding Uses
The uses surrounding the sites listed in the evaluation matrix are provided as an indication of the
compatibility of multifamily affordable housing in each potentially impacted area. The SC
matrix category provides information on the zoning and development found around the potential
affordable housing site. The compatibility of building multifamily affordable housing in
communities throughout Monroe County will be reviewed throughout the implementation of the
BOCC Affordable Housing Action Plan.
The public and other interested parties will be able to participate in discussions of the impacts of
these developments when the boards of the County Commissioners, Land Authority and the
Monroe Housing Affordable Housing Finance Authority review these sites. There will also be
opportunities for public input on this process when these boards decide how many units will go
on each site and during the design review competition.
Potential Sites for the BOCC Affordable Housing Action Plan
Page 6 of8
Livable CommuniKeys: Community Planning
The impacts of multifamily affordable housing and other developments on the character of
communities throughout unincorporated Monroe County will be addressed as part of the
CommuiKeys program. CommuniKeys, a local community planning initiative supported by the
Board of County Commissioners, directs the Planning Department to work more closely with
individual communities in the Keys. This initiative, which focuses on the built environment, will
lead to more community-based input in planning decisions.
ADDITIONAL CONSIDERATIONS:
Marathon
Potential affordable housing sites for the new city of Marathon are included in the evaluation
matrix. However, due to Marathon's incorporation, affordable housing initiatives within the new
city are no longer within the jurisdiction of the Monroe County Board of County Commissioners.
The Planning Department will forward this potential affordable housing site information to the
elected board for the new city of Marathon, so that it can determine the most appropriate sites for
affordable housing within the city.
Partnerships
Partnering with developers is essential for the implementation of the BOCC's Affordable
Housing Action Plan. These partnering opportunities include both private developers, many of
whom would competed for funding from the State's tax credit program, and public developers,
such as the Monroe County Housing Authority. Developments that use both 'ROGO exempt
FEMA units' and ROGO units could provide developers with greater flexibility in terms of the
size, design of their housing proposals and help lower the costs of developing affordable units as
part of this action plan. In addition mixed-income developments may be more acceptable in
certain communities than developments that only consist of affordable units.
Potential Sites for the BOCC Affordable Housing Action Plan
Page 7 of 8
Suburban Commercial & Mixed Use Zoning
The Planning Department was directed by the BOCC to examine those areas in the County that
are already zoned to accommodate medium to high intensity uses. While Suburban Commercial
(SC) and Mixed Use (MU) areas are zoned to accommodate such uses, the current language of
the Monroe County Code impedes the development of affordable housing in these areas. Section
9.5-235 of the County Code only allows for commercial apartments if they are 'in conjunction
with a permitted commercial use".
The complexities of linking commercial and residential developments hinder building affordable
commercial apartments on SC and MU sites. Text amendments to amend to the County Code do
not need to be reviewed and approved by the DCA if the amendments are not in conflict with the
2010 Plan. Therefore, the 'associated commercial use' requirement for affordable units in areas
zoned SC and MU could easily be removed from the County Code since this requirement is not
part of the 2010 Plan. Removing the 'associated commercial use' requirement from this section
of the County Code, would increase opportunities to build attached affordable housing units on
SC and MU sites.
CONCLUSIONS
The Planning Department recommends APPROVAL of this staff report by the Board of County
Commissioners. Upon approval, copies of this report shall be forwarded to the Land Authority
and the Monroe County Housing Finance Authority for the review and approval oftheir
respective boards.
Potential Sites for the BOCC Affordable Housing Action Plan
Page 8 of8
I. BOCC's Affordable Housing Action Plan
. , J.
I
\
Motion on Affordable Housing Issues:
Motion supports staff recommendations on Blue Ribbon Committee
Recommendations: nl...n~
#2 Monroe County Housing,Authority leadership role
#3 No change to the land Authority Mission Statement
#6 Identify and actively work toward seeking affordable housing funding
#1 request changes to the State Statutes as requested by Blue Ribbon
Committee
#8 direct staff to prepare a resolution for a special designation of Monroe
County as a Target Area for affordable housing funding
#10 create a pool of affordable housing units to replace those to be lost via
the Fema inspection process within the confines of the law
#12 request County staff updates on the hurricane evacuation model
~ I~ ..,J-til ~c/~~
Things the motion doesn't support: more committees, more studies, more
consultants.. the point of the motion is for us to START GETTING THIS DONE!
Motion's Ran for Action:
1) DCA has expressed a willingness to commit to 90 affordable housing
permits outside of RaGa to replace units about to be destroyed in the
Fema inspection process that were counted in the housing unit numbers
that resulted in our current RaGa allocation numbers. Our first step is to
get that agreement on the table and we should direct staff to do so, with
the aim of finalizing that agreement by the end of the year. (Jan 1, 2000) /
2) We should direct staff to identify a suitable parcel or parcels of land in '
each of the three areas of the Keys (Upper, Middle & lower) as a
su~zoned.,site for affordable housing (with each geographically
designated parcel to be planned as the recipient of one third of the
coming permits detailed in 1) above), (February 1, 2000)
3) Those land parcels should be presented to the land Authority for
consideration for purchase, and to the Monroe County Housing Finance
Authority - and we should acquire those parcels through one of those
means. (June 2000)
4) County PlCnning Department staff should plan a design competition or
RFP process for developers interested in partnering with the County to
t
!
~
produce much needed affordable housing projects on each of these
sites with the following criteria for those housing uni1s; multiple unrr projects
wi1h monthly housing unit rents between $500 - $800. (should take place
simultaneously with item #4, August 1, 20(0) .
5) The Design Competition or RFP will be approved by the County
Commission and submitted for responses. (August 15, 2000)
6) The Housing Rnance Authority with the aid of Planning Department Staff
shall report on the quality of the responses. (November 15, 2000)
7) The Board of County Commissioners will formally approve the best
response. (November 15, 2000)
8) The Monroe County Housing Authority will put together a financing
package to allow the projects to begin, starting with the project in the
area of greatest need (first project should be contractually obligated in
the first quarter of 2(01).
II. Potential Affordable Housing Sites Evaluation Matrix
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1. DRIVE-IN (STOCK ISLAND)
RE # 127400
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2. BOUNTY FISHERIES - MALONEY (STOCK ISLAND)
LOTS 32-40 BLK 53
RE# 126860, 126870, 126880, 126890, 126900,
126910,126920,126930,126940
3. LINCOLN MANOR ESTATES (STOCK ISLAND)
LOTS 1-15 BLK 2
RE#131170,131180, 131190, 131200,131210, 131220,131230,13 1240,131250,
131260,131270,131280,131290,131300,131310
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RE# 127370, 123800
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RE# 155820
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[across from Circle K]
LOTD
RE# 155830
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LOTS 1-9 BLK 2
RE#190740, 190750, 190760, 190770,190780,190790, 190800
190810,190830
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RE# 102520
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LOTS 1-2 BLK 5
RE# 337230, 337240
10. SOMBRERO COUNTRY CLUB MA OR (MARATHON)
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LOTS 1-4 + 1
RE# 355240,
355415-000100
355415-000200
355415-000300
355415-000400
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LOT 6
RE# 00089490
13. KULA (TAVERNIER)
LOTI
RE# 490130
14. GILDAMRIC - INDUSTRIAL ACRES (KEY LARGO)
LOTS 4-14 BLK 4
RE# 455580, 455590, 455600, 455610, 455620, 455630, 455640,
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