Item O4BOARD OF COUNTY COMMISSIONERS
AGENDA ITEM SUMMARY
Meeting Date: August 16, 2006
Bulk Item: Yes No X
Division: County Administrator
Department: County Administrator
Staff Contact: Mark Rosch
AGENDA ITEM WORDING: Approval to transmit the Monroe County Land Acquisition and
Management Master Plan to the Department of Community Affairs for review.
ITEM BACKGROUND: Rule 28-20.110 of the Florida Administrative Code adopted by the
Administration Commission and BOCC Resolution 39-2004 (the Monroe County/DCA
partnership agreement) require the County to prepare a land acquisition and management
master plan. The proposed plan addresses strategies and funding sources for the acquisition
and management of conservation lands, retirement of development rights, and acquisition of
affordable housing sites. The plan identifies unfunded land acquisition and management
needs of $390 million and recommends that the County plan to fund 25% of this shortfall
($98 million) over the next 20 years.
PREVIOUS RELEVANT BOCC ACTION:
1/2/04 The Board approved Resolution 39-2004 (the Monroe County/DCA partnership
agreement).
2/15/06 The Board hired consultant Muller and Associates, Inc. to prepare the plan.
CONTRACT/AGREEMENT CHANGES: None
STAFF RECOMMENDATIONS: Approval
TOTAL COST: $390 million
COST TO COUNTY: 98 million
REVENUE PRODUCING: Yes
APPROVED BY: County Atty
DIVISION DIRECTOR APPROVAL:
DOCUMENTATION: Included
BUDGETED: Yes No X
No X AMOUNT PER MONTH YR
OMB/Purchasing Risk Management
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County Administrator
X To Follow Not Required
DISPOSITION: AGENDA ITEM #
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Cover photo courtesy of NASA Visible Earth
Acknowledgements
Information for this plan was drawn from many sources and the knowledge of numerous
individuals. Mark Rosch, Monroe County Land Authority and contract manager for this project,
was especially helpful in providing information or suggesting people to contact. The draft Land
Acquisition and Management Master Plan prepared by Matt VanEss, former Monroe County
Land Steward, was the source of some of the text of this plan, much information and many
leads. George Garrett was helpful in providing analyses from the Monroe County GIS. Jose
Papa of the Monroe County Planning and Environmental Resources Department kept us
abreast of recent comprehensive plan developments. Florida Department of Environmental
Protection staff, especially Greg Brock, Amy Phillips, Mike Tedder, and Tom Snyder, were
gracious in providing information regarding Florida Forever efforts in the Keys. Rebecca Jetton
of the Florida Department of Community Affairs helped guide us through the intricacies of the
Keys work program. Chris Bergh of The Nature Conservancy and Jeanette Hobbs of the Keys
Environmental Restoration Fund were especially helpful regarding conservation land restoration
and management. Jerry Coleman with the Monroe County Workforce Housing Task Force,
Reggie Paros of the Housing and Community Development and Manuel Castillo of the Monroe
County Housing Authority provided information on affordable housing needs and efforts.
Executive Summary
Land acquisition and management are critical components to the protection of the natural
resources and quality of life in the Florida Keys. Land must be purchased for conservation
lands, affordable housing and retirement of development rights. Once environmentally -sensitive
lands are in public ownership, proper management is necessary to protect the resources for
which the lands were acquired. The Monroe County Year 2010 Comprehensive Plan and the
state Land Planning Regulations for the Florida Keys Area of Critical State Concern - Monroe
County (Chapter 28-20, Florida Administrative Code) both call for a Land Acquisition and
Management Master Plan. The January 2004 cooperative agreement between Monroe County
and the Florida Department of Community Affairs (DCA) further emphasized the need for this
plan to address strategies, funding, and non -funding sources for acquisition and management of
conservation lands, retirement of development rights, and acquisition of affordable housing
sites.
Since the signing of the cooperative agreement, Monroe County has amended the Monroe
County Year 2010 Comprehensive Plan and adopted analogous Land Development
Regulations to provide guidance for local land acquisition and management. These
amendments adopted the Tier System, set the priorities and framework for the land acquisition
process and master plan, and directed how acquired lands were to be managed.
Conservation Land Acquisition and Management
In 2004 and 2005 the Florida Forever program added about 7700 acres of the most
environmentally sensitive lands in the Keys to existing Florida projects. Since December 2003
the state has spent or committed in contracts more than $56 million to acquire Florida Forever
project lands in the Keys.
It is estimated that approximately $354 million will be necessary to acquire the remaining
environmentally sensitive lands in the Keys. Lands within Florida Forever projects are
estimated to cost approximately $298 million in today's dollars. Environmentally sensitive lands
outside of Florida Forever may cost about $57 million. Once acquired, state and federal
agencies and the county will manage these lands. It is estimated that the county's conservation
land management costs will be approximately $346,000/year if all the lands are acquired.
Affordable Housing
Since the signing of the cooperative agreement, Monroe County has spent approximately $7.5
million of local funds on affordable housing and has planned expenditures of more than $2.5
million for the remainder of 2006. This totals more than $10 million, the amount cited in the
agreement with DCA. Florida Keys organizations have received almost $2 million from the
Florida Housing Corporation, and anticipate $20 million being available during the next five
years. The Monroe County Workforce Housing Task Force established a goal of construction of
5000 affordable housing units in the next decade. Based on recent purchases of undeveloped
land for affordable housing, the cost of land alone for 5000 units would be approximately $260
million. The Task Force has made several recommendations that could substantially reduce the
cost per unit for affordable housing land.
Retirement of Development Rights
Unincorporated Monroe County has 197 residential dwelling allocations available for distribution
each year through the Rate of Growth Ordinance (ROGO) process; a minimum of 71 of these
are reserved for affordable housing. Applicants who have applied for a ROGO allocation for
permission to build residential buildings in unincorporated Monroe County for four successive
years and have not received a building allocation are eligible to apply for administrative relief,
which may entail purchase of the property. Approximately 130 applicants will be eligible for
administrative relief this year. Assuming an assessed value of $117,000 per parcel, the 130
relief -eligible parcels have an assessed value of approximately $15.2 million.
Currently, approximately 4,950 Improved Subdivision lots are available for housing. Assuming
the number of available residential building permit allocations for unincorporated Monroe County
remains at 197 per year, 3940 allocations will be available during the next 20 years. This leaves
approximately 1000 Improved Subdivision lots that may either need to be acquired for property
rights issues, may be donated or aggregated as part of ROGO, or will not be developed within
the next 20 years. If the average cost per vacant lot is $117,000, a rough estimate of the
approximate cost of these 1000 lots in today's dollars is $117 million.
Tools for Land Acquisition and Management
A variety of funding and non -funding sources for conservation land acquisition, conservation
land management, affordable housing, and retirement of development rights are being utilized in
the Keys. Some existing sources are currently untapped, and some potential new funding
sources may be available. For sources that do not exist or are expansions of funding sources
that do not have severe restrictions, it may be possible to craft the funding program so that
funds are available for multiple purposes.
Implementation Strategies for the Land Acquisition and Management Master Plan
Implementation of the Land Acquisition and Management Master Plan will take substantial
additional funding. The county is committed to securing additional funds, from both local and
non -local sources. In addition, some non -funding related actions can contribute to successful
performance. However, it is recognized that with the uncertainty concerning the county's ability
to successfully secure sufficient funding from state and federal governments for their fair share
of the financial support for the Land Acquisition Program, and with the demands placed on the
county's limited financial resources to address wastewater and other critical issues, the Land
Acquisition Program may extend well beyond 20 years. In implementing this Land Acquisition
and Management Master Plan, Monroe County is only committed or financially obligated to the
extent that local, state, and federal funds are available.
The adopted Comprehensive Plan amendments and associated Land Development Regulations
clearly lay out the types of lands that should be acquired, priorities for land acquisition, and
criteria for assigning priorities within categories. Also described are responsibilities for land
acquisition and development of an intergovernmental organization and management structure to
implement the acquisition program. The Comprehensive Plan also specifies that lands acquired
through the Monroe County Land Acquisition Program will be managed to restore, preserve,
and protect the conservation, recreation, density reduction and affordability purposes for which
the lands were acquired.
An essential component to the successful implementation of the Land Acquisition and
Management Master Plan is a financial plan. Estimates of the cost, available funding, and
funding shortfall, however coarse, provide an idea of the magnitude of additional funding
necessary. Under current programs, approximately $53 million is estimated to be available
during the next 20 years for conservation, development rights, and affordable housing land
acquisition and conservation land management in unincorporated Monroe County. According to
rough estimates, approximately $57 million will be needed for acquisition of environmental lands
outside of Florida Forever boundaries, $9.1 million for conservation land management, $260
million for land for affordable housing, and $117 million for retirement of development rights, for
a total of about $443 million. This leaves a shortfall of approximately $390 million. A figure that
is 25% of this total estimate will also be considered, since not all landowners are willing to sell
their land, which will also result in lower conservation land management costs.
Additional local funds are essential to the successful implementation of Land Acquisition and
Management Master Plan. When possible, the categories in which various types of local funds
can be expended should be made flexible to provide latitude to respond to changing conditions.
For this first iteration of the LAMMP, the county will plan to fund an additional $98 million during
the next 20 years, which equals 25% of the estimated $390 million shortfall.
Table of Contents
INTRODUCTION....................................................................................................................................................... I
THEFLORIDA KEYS....................................................................................................................................................1
PURPOSE OF THE LAND ACQUISITION AND MANAGEMENT MASTER PLAN.................................................................1
EFFORTS AND CURRENT STATUS......................................................................................................................3
CURRENT POLICIES AND DIRECTION..........................................................................................................................3
Cooperative Agreement Commitments Regarding Affordable Housing and Habitat Protection ..........................
3
RevisedCounty Policies........................................................................................................................................3
CONSERVATION LAND ACQUISITION..........................................................................................................................5
Current Conservation Land Acquisition Efforts....................................................................................................5
Estimated Future County Conservation Land Acquisition Obligations.................................................................
7
CONSERVATION LAND MANAGEMENT.....................................................................................................................10
Conservation Land Management Entities............................................................................................................10
County Conservation Land Management Policy.................................................................................................11
Estimated Future County Conservation Land Management Obligations............................................................11
AFFORDABLE HOUSING LAND ACQUISITION............................................................................................................13
Workforce Housing Task Force...........................................................................................................................13
Implementation of Task Force Recommendations...............................................................................................13
LandAcquisition..................................................................................................................................................14
Estimated Future Co un ty Affordab le Housing Land Needs.................................................................................15
RETIREMENT OF DEVELOPMENT RIGHTS..................................................................................................................16
AdministrativeRelief...........................................................................................................................................16
RecentROGO Applications.................................................................................................................................17
ROGOLots..........................................................................................................................................................17
Potential Future County Retirement of Development Rights Needs....................................................................17
SUMMARY OF FUNDING NEEDS................................................................................................................................18
TOOLS FOR LAND ACQUISITION AND MANAGEMENT.............................................................................20
CONSERVATION LAND ACQUISITION........................................................................................................................20
Typesof Land Acquisition...................................................................................................................................20
Conservation Land Acquisition Entities..............................................................................................................20
Land Acquisition Funding Sources and Programs Currently or Recently Used in the Keys...............................20
Non -Funding Sources for Land Acquisition........................................................................................................21
Existing Funding Programs and Sources Not Being Used for Conservation Land Acquisition in the Keys .......
21
New Funding Sources for Conservation Land Acquisition..................................................................................23
CONSERVATION LANDS MANAGEMENT OF COUNTY OR MCLA-OWNED LANDS......................................................23
Land Management Funding Sources and Programs Currently or Recently Used in the Keys ............................
23
Non -Funding Sources for Conservation Land Management...............................................................................
24
Existing Funding Programs and Sources Not Being Used for Conservation Land Management in the Keys.....
24
AFFORDABLEHOUSING............................................................................................................................................25
Affordable Housing Land Acquisition Entities....................................................................................................25
Affordable Housing Land Acquisition Funding Sources and Programs Currently or Recently Used in the Keys
.............................................................................................................................................................................
26
Existing Funding Programs and Sources Not Being Used for Affordable Housing Land Acquisition in the Keys
.............................................................................................................................................................................
26
Potential Non -Funding Sources forAffordable Housing Land Acquisition........................................................27
RETIREMENT OF DEVELOPMENT RIGHTS..................................................................................................................27
Entities Involved in Retirement of Development Rights.......................................................................................
27
Funding Sources Currently Being Used..............................................................................................................28
Existing Funding Sources Not Being Used..........................................................................................................28
Nonfunding Sources........................................................................................................................................... 28
POTENTIAL NEW OR INCREASED FUNDING SOURCES FOR CONSERVATION LAND ACQUISITION AND MANAGEMENT,
AFFORDABLE HOUSING, AND RETIREMENT OF DEVELOPMENT RIGHTS...................................................................28
Potential Local Funding Sources........................................................................................................................ 29
IMPLEMENTATION STRATEGIES FOR THE LAND ACQUISITION AND MANAGEMENT MASTER
PLAN..........................................................................................................................................................................32
LAND ACQUISITION PRIORITIES...............................................................................................................................32
Typesof Land to Acquire.....................................................................................................................................32
Development of a Priority List of Land Acquisition Sites....................................................................................
33
Responsibilities for Land Acquisition..................................................................................................................
35
Intergovernmental Organization to Implement the Land Acquisition Program ..................................................
36
CONSERVATION LAND MANAGEMENT BY THE COUNTY AND MCLA.......................................................................36
Multi -organization Structure for Conservation Land Management....................................................................37
Management Plans for County/MCLA-owned lands...........................................................................................
37
Management Plan for State-owned Land Managed by the County.....................................................................
38
PriorityRestoration Lists....................................................................................................................................
38
FINANCIALPLAN......................................................................................................................................................
39
FundingStatus.....................................................................................................................................................40
Funding Strategy for State and Federal Funds...................................................................................................
41
Funding Strategy.for Local Funds.......................................................................................................................42
ADDITIONAL RECOMMENDATIONS...........................................................................................................................44
List of Tables
Table 1. Conservation -related Tier lands, assessed values, and anticipated funding source .....9
Table 2. Rough estimates of initial and maintenance annual costs per acre for conservation
landsin the Florida Keys.....................................................................................................12
Table 3. Rough estimate of continuing management costs for environmental land potentially
to
be managed by Monroe County..........................................................................................12
Table 4. Rough estimates of funds that may be needed for conservation and affordable land
acquisition, conservation land management, and retirement of development rights ..........19
Table 5. Priority restoration lists to be developed......................................................................
39
Table 6. Significant funding and non -funding sources available on a regular basis for
conservation, development rights, and affordable housing land acquisition in
unincorporated Monroe County...........................................................................................40
Monroe County Land Acquisition and Management Master Plan DRAFT
Introduction
The Florida Kevs
The Florida Keys archipelago consists of a 112-mile long chain of islands located at the
southern tip of Florida. The island chain is separated by Florida Bay to the east and the Atlantic
Ocean to the west and buffered by the world's third largest barrier reef. The biological
communities in the Florida Keys have evolved in response to distinctive island environmental
conditions characterized by strong marine ocean influences, subtropical savanna -type climate
(hot humid summers and cooler dry winters), limestone substrate, and hurricanes.
These conditions, combined with the isolation of the islands, have supported colonization and
evolution of highly specialized plants and animals, many occurring only in the Florida Keys. The
Florida Keys have the only subtropical upland and coral reef environments in the continental
United States and are environmentally and culturally unique. The upland habitats, hammock
forests and pinelands, include federally listed threatened and endangered species.
Local, state, and federal programs protect the irreplaceable environment of the Keys. Four
National Wildlife Refuges manage significant portions of the Keys as wildlife conservation areas.
The waters surrounding the Keys were established as the Florida Keys National Marine
Sanctuary in 1990. A number of Florida State Parks, the Florida Keys Wildlife and
Environmental Area and State Aquatic Preserves offer protection to resources and enjoyment to
residents and visitors. Local governments also own and manage property for schools,
community parks, affordable housing, as well as for growth management and conservation
purposes. The Nature Conservancy, the Audubon Society, the Florida Land and Sea Trust and
other non -governmental organizations own and manage private sanctuary areas and assist in
conservation acquisitions and management in the Keys.
Approximately 60%-70% of the Keys is in public ownership and about 15% of the land area is
developed. This leaves between 15% and 20% of vacant land area in private ownership for
future development and conservation.
The major policy documents governing the future development and conservation of the
remaining vacant unincorporated area of the Keys include the Area of Critical State Concern
designation, the Monroe County Year 2010 Comprehensive Plan, and the Florida Keys Carrying
Capacity Study.
Purpose of the Land Acquisition and Management Master Plan
Land acquisition and management are critical components in the protection of the natural
resources and quality of life in the Florida Keys. Land must be purchased for conservation
lands, affordable housing and retirement of development rights. Once environmentally -sensitive
lands are in public ownership, proper management is necessary to protect the resources for
which the lands were acquired.
The Monroe County Year 2010 Comprehensive Plan and the state Land Planning Regulations
for the Florida Keys Area of Critical State Concern - Monroe County (Chapter 28-20, Florida
Administrative Code) both call for a Land Acquisition and Management Master Plan (LAMMP).
Muller and Associates, Inc. DRAFT 28 July 2006
Monroe County Land Acquisition and Management Master Plan DRAFT
The necessity of this plan was reiterated in the January 2004 cooperative agreement (Monroe
County Resolution 039-2004 and attached agreement) between Monroe County and DCA to
address significant issues regarding implementation of the Year 2010 Comprehensive Plan
Work Program and the recommendations of the Florida Keys Carrying Capacity Study. The
agreement called for Monroe County to "Prepare a Land Acquisition Master Plan including
strategies, funding, and non -funding sources for acquisition and management of conservation
lands, retirement of development rights, and acquisition of affordable housing sites."
This document reports on land acquisition and management efforts in unincorporated Monroe
County and then describes some tools for land acquisition and management. The
implementation strategies address land acquisition priorities, conservation land management by
the county and the Monroe County Land Authority (MCLA), a financial plan, and additional
recommendations.
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Monroe County Land Acquisition and Management Master Plan DRAFT
Efforts and Current Status
Current Policies and Direction
The current policies and direction of land acquisition for conservation, affordable housing and
retirement of development rights in Monroe County are driven by a variety of factors. In January
2004, Monroe County entered into a cooperative agreement with the Florida Department of
Community Affairs (DCA) to address significant issues regarding implementation of the Year
2010 Comprehensive Plan Work Program and the recommendations of the Florida Keys
Carrying Capacity Study. DCA and the county made various commitments about affordable
housing and habitat protection, in addition to other issues.
Cooperative Agreement Commitments Regarding Affordable Housing and Habitat
Protection
In the cooperative agreement, the county committed to obtain up to $10 million in bond
financing to purchase land for workforce housing. DCA agreed to secure $3 million and initiate
securing an additional $17 million in grant funds for affordable/workforce housing over the next
two years (January 2004-2006).
The county agreed to adopt the Tier Overlay Map system and to prepare a Land Acquisition
Master Plan for acquisition and management of conservation lands, retirement of development
rights, and acquisition of affordable housing sites. The county also agreed to set aside $2
million of reserve ROGO funds to purchase environmentally sensitive lands from voluntary
sellers.
DCA agreed to secure $93 million for purchase of environmentally sensitive lands and to
expand land acquisition boundaries to include a majority of the most environmentally sensitive
vacant privately owned lands. The $93 million figure was based on the average cost per acre of
Florida Forever project lands acquired in the Keys in the previous two years. DCA also agreed
to work with the county in the preparation of a Land Acquisition Master Plan.
Revised County Policies
Since January 2004, the Monroe County Year 2010 Comprehensive Plan has been amended
and analogous Land Development Regulations were adopted to provide guidance to land
acquisition and management, among other topics. These amendments are closely tied to
adjustments to the Rate of Growth Ordinance (ROGO) through the adoption of the Tier Overlay
District Map (Tier System) by the Monroe County Board of County Commissioners in March
2006. ROGO provides for a competitive process for applicants to receive an allocation to build
from the limited number of allocations available on an annual basis. Currently, unincorporated
Monroe County has 197 allocations available per year, with a minimum of 71 reserved for
affordable housing.
The Tier System implements Goal 105 of the Monroe County Year 2010 Comprehensive Plan
and the recommendations of the Florida Keys Carrying Capacity Study. Goal 105 provides a
framework for future development and land acquisition for the next 20 years that considers the
Muller and Associates, Inc. DRAFT 28 July 2006 3
Monroe County Land Acquisition and Management Master Plan DRAFT
carrying capacity of the Florida Keys, reduces sprawl and promotes sustainability. By placing
land in Monroe County in three broad categories of the Tier System, the county is identifying
areas appropriate for additional development and those which are important environmentally
and should be preserved.
The Tier System is based on the natural resources and location of parcels. Tier designations
consider factors such as native vegetation, threatened/endangered species, proximity to natural
areas and conservation lands, size, and amount of development. Tier I lands are most
environmentally sensitive, followed by Tier 11 lands and Tier III lands.
Tier I includes all natural areas above four acres and restoration areas between fragmented
smaller native upland patches to increase the native upland area size and buffers where
possible. Tier II lands, which consist of transition and sprawl reduction areas, are located only
on Big Pine Key and No Name Key. Tier III lands have two groups — Tier III and Tier 111-A
(Special Protection Areas). Tier III is appropriate for additional infill development because of the
location and amount of existing development in the areas designated and the absence of
significant upland native habitat patches. Tier III -A includes isolated upland native habitat
patches of one acre or more in area that require increased protection from development.
Goals 102, 105 and 205 of the Year 2010 Comprehensive Plan have policies that address
conservation land acquisition and management, affordable housing, and retirement of
development rights. Some contents of the Land Acquisition and Management Master Plan are
also addressed in these goals.
Priorities for land acquisition and management are laid out in numerous policies. In summary,
the Comprehensive Plan calls for land acquisition and management to be a structured,
coordinated, cooperative effort between all levels of government. Acquisition of land is
dependent on funding availability, and the county wishes the state and federal government to
buy the majority of Tier I lands. The County Land Acquisition Master Plan will identify sources
of funding for land acquisition.
The priorities for acquisition of lands and development rights under the County's Land
Acquisition Program are: Tier I and land for affordable housing - first priority, Tier II and Tier III -
A — second priority, and Tier I I I — third priority. For affordable housing, acquisition priority will be
given to parcels in Tier III suitable for development or redevelopment of six or more units and
projects that are ready to proceed with ROGO allocations available.
All privately -owned vacant lands in Tier I and most in Tiers II and III -A should be acquired.
Retirement of development rights is a focus of these efforts. The preferred methods of
acquisition are fee simple purchase, donation, or dedication or retirement of development rights
through transfer of development rights. Monroe County will focus its land acquisition efforts on
vacant privately -owned, buildable, platted lots in Tiers I and II and scarified and disturbed lands
for affordable housing in Tier III.
Monroe County intends to have a 20-year Land Acquisition Program and to identify and secure
a steady local source of funds. The county also wishes to secure increased state, federal and
private funding for the acquisition, management and restoration of acquired resource
conservation lands. The county, in consultation with cooperators and with public input, will
develop an annual priority list of native upland habitat acquisition sites in Tier I. Because of
funding uncertainty at all levels, the acquisition program may extend beyond 20 years.
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Monroe County Land Acquisition and Management Master Plan DRAFT
Monroe County and cooperators will develop a planning process for publicly owned native
lands. The process will be flexible to adapt to new information and acquisitions. Management
plans, developed in coordination with managers of adjoining lands, will address protection,
restoration and management of acquired lands. Management plans will be reviewed every
three years and revised as needed.
Conservation Land Acquisition
Historically, the state and federal governments have been the most active conservation land
acquisition entities in the Florida Keys. The US Fish and Wildlife Service has acquired almost
20,000 acres at a cost of more than $44 million. The state's major environmental land
acquisition programs have been active in the Keys for decades, primarily through the
Conservation and Recreation Lands (CARL) and Florida Forever -Board of Trustees (BOT)
Programs. Through February 2006, the state acquired 10,774 acres at a cost of approximately
$173 million. The Monroe County Land Authority has acquired much conservation land,
sometimes buying land the Authority will hold, at other times buying land that will be transferred
to the state. Groups such as The Nature Conservancy, The Conservation Fund and Trust for
Public Land have also acquired conservation lands in the Keys. Sometimes these groups bring
private funds into the process, and at other times they acquire lands using public funds or are
reimbursed for acquisition costs.
In 2004 DCA contracted with Muller and Associates, Inc. to work with Florida Keys local
governments, the Florida Fish and Wildlife Conservation Commission (FWC) and the U.S. Fish
and Wildlife Service (FWS) to prepare boundary amendments for the three existing Florida
Forever -Board of Trustees projects in the Keys. About 7,669 acres with a tax assessed value of
approximately $47 million were added to the Florida Forever projects. Most of this land is in
unincorporated Monroe County within Tier I. Lands included in Florida Forever projects are
eligible for purchase by the Florida Forever program. State and federal agencies agreed to
manage some of the boundary amendment lands adjacent to existing conservation areas.
Monroe County agreed to manage all Florida Forever lands acquired within unincorporated
Monroe County that the state and federal governments were not willing to manage (Monroe
County Resolution 219-2004). The cities of Marathon and Islamorada agreed to manage lands
within their respective incorporated areas.
Current Conservation Land Acquisition Efforts
State
The state is making a concerted effort to acquire all Florida Forever/Board of Trustees project
lands in the Florida Keys. This effort is coordinated through the Florida Department of
Environmental Protection Division of State Lands. The boundary amendments of June 2004 and
February 2005 added approximately 7,669 unacquired acres to the three Florida Forever
projects in the Keys - North Key Largo Hammocks, Florida Keys Ecosystem, and Coupon
Bight/Key Deer.
From December 2003 through April 10, 2006, the state spent $14.5million to acquire 411 acres
(589 parcels), and contracted another 549 acres (1400 parcels) for about $33.6 million. An
additional $8.5 million was spent in that time on costs related to land acquisition (appraisals,
surveys, closings, etc.), for a total of $56.6 million since December 2003. The state has made
at least two offers on about 95% of all parcels in Florida Forever projects in the Keys, including
5
Monroe County Land Acquisition and Management Master Plan DRAFT
the recent boundary amendments. Based on January 2006 numbers from DEP Division of
State Lands, the state owns approximately 8200 of the 19,300 acres in the three Florida Forever
projects in the Keys. The federal government, Monroe County, the MCLA, and non-profit
conservation groups own approximately 2900 acres within the Florida Forever boundaries.
Some of these acres will likely be sold or donated to the state. About 8300 acres, or 43%, are
still privately owned.
Federal
The US Fish and Wildlife Service has had a minimal level of land acquisition activity in the Keys
in the last few years, and no substantial land acquisition funding is anticipated in the near future.
Monroe County
Most local government land acquisitions have been through the Monroe County Land Authority
or donation of land pursuant to the county's ROGO ordinance (see "ROGO lots", below). The
MCLA serves all of the Keys, not just unincorporated Monroe County. The MCLA acquires a
variety of land for conservation, infrastructure, and affordable housing needs. The Monroe
County Board of County Commissioners (BOCC) sits as the governing board of the MCLA and
has appointed a five -member advisory committee. The annual revenue stream of the MCLA is
approximately $2.4 million, derived primarily from a lodging bed tax and a surcharge on
admissions to state parks in the Keys. One million of this annual income is restricted to use for
Key West; the balance of $1.4 million is available to the rest of the Keys, including
unincorporated Monroe County.
Much of the MCLA staff time is spent coordinating with the state's land acquisition efforts.
Oftentimes the MCLA acquires lands within Florida Forever project boundaries. These lands
are usually transferred to the state and the MCLA is reimbursed. From January 2004 through
May 2006, the MCLA acquired 19 acres of land within Florida Forever boundaries at a cost of
$500,000. The MCLA also acquires environmentally sensitive lands outside of Florida Forever
boundaries. Since January 2004, the MCLA has acquired 15 acres of environmentally sensitive
land outside of Florida Forever project boundaries at a cost of $2.1 million. In addition, 185
parcels, about 21 acres, have been donated through the ROGO process, 91 one of these in
2005 alone.
Non -governmental Organizations
The Conservation Fund
The Conservation Fund is an environmental nonprofit dedicated to protecting America's most
important landscapes and waterways with a partnership -driven approach. The Fund is currently
pursuing potential acquisitions in Great White Heron and National Key Deer National Wildlife
Refuges. Recently, at the request of the FWS, the Fund completed a two-year project in the
Lower Keys that involved 17 lots and one owner. The lots were optioned by the Fund, which
then coordinated with the FWS, the state and the county so that each entity could identify the
lots they desired. The Fund then closed on the lots and coordinated transfer of the lots to each
agency. The Conservation Fund is willing to work with agencies in the Keys at their request to
assist in land conservation efforts.
The Nature Conservancy
The Nature Conservancy (TNC) is an environmental nonprofit with the mission to preserve the
plants, animals and natural communities that represent the diversity of life on Earth by
protecting the lands and waters they need to survive. In 2002 TNC purchased about 600 acres
of hammock and mangrove in the Upper Keys. Most will go to the Everglades National Park
and a small portion to Florida Forever. TNC has limited funding available for land acquisition in
Monroe County Land Acquisition and Management Master Plan DRAFT
the Keys. Some previous TNC Keys acquisitions will be sold to government agencies and those
funds will then be available to acquire other environmentally -sensitive lands in the Keys. TNC is
working toward an agreement with the National Audubon Society and the U.S. Army Corps of
Engineers to purchase wetlands and coastal uplands using wetlands mitigation funds collected
by the Corps and administered by Audubon's Keys Environmental Restoration Fund. TNC also
accomplishes land protection by accepting donations.
TNC is not expanding its permanent nature preserve holdings in the Keys. Instead they are
targeting properties that public entities (i.e., FWS, U.S. National Park Service, Florida
Department of Environmental Protection, Monroe County and Keys municipalities) are willing to
own and manage for the long term. TNC works with the land acquisition personnel of these
entities to identify projects for direct TNC involvement. TNC also facilitates land acquisition in
the Keys by directing interested parties to relevant government land acquisition programs and
advocates for funding and other resources for these programs at all levels of government.
The Trust for Public Land
The Trust for Public Land (TPL), a nonprofit land conservation organization, has a broader
mission than the Conservation Fund and TNC. TPL projects are focused on quality of life, and
range from conservation lands to open space to affordable housing. In the last few years, TPL
has been involved in all of these types of projects with the Keys. Using funds from various
sources, TPL has acquired and conveyed conservation lands in Key West, open space in
Islamorada, and in 2005 a conservation land/affordable housing project in Islamorada. The
MCLA has been involved in some of these projects. TPL is pursuing additional projects in the
Keys and is available to work with government agencies and private groups.
Estimated Future County Conservation Land Acquisition Obligations
With the approval of the Tier System amendment to the ROGO process in March 2006, Monroe
County has defined which vacant lands are important to acquire for environmental protection.
As described earlier, county policy now states that for environmental purposes, the priorities for
acquisition are Tier I parcels and then Tier II and Tier III -A (Special Protection Areas). Most of
the Tier I lands are within Florida Forever project boundaries. A relatively few number of Tier I
parcels were not included in the Florida Forever boundary, some of which were excluded at the
landowners request.
The three Florida Forever projects in the Keys were placed on state acquisition lists in 1983,
1985 and 1992 and all have had lands added since then. Some parcels within the project
boundaries have been developed. Usually the state does not take action to remove these
parcels from the project boundaries, but instead does not pursue purchase of these parcels. As
a result, developed parcels that the state doesn't intend to purchase may be within project
boundaries. Table 1 shows the breakdown of land parcels by Tier system and Florida Forever
status. The assessed value and parcel data, including development status, are from the
Monroe County Property Appraiser's Office (July 2005), overlain with the Tier system and
Florida Forever project boundaries. The most recent state acquisitions are not reflected.
Overall totals and totals for undeveloped parcels are provided. It is anticipated that very few
developed parcels will be purchased, so it is not necessary to budget for them.
The number of acres and parcels and the assessed value for all parcels within Florida Forever
projects within unincorporated Monroe County are provided as the top row of values in the table.
This includes a significant number of developed properties that will not be acquired. The other
7
Monroe County Land Acquisition and Management Master Plan DRAFT
rows of the table only address vacant land in the various environmentally sensitive Tier
categories.
Monroe County/MCLA have made significant progress acquiring lands within Tier I. In many
cases the MCLA has acquired lands within Florida Forever projects, transferred the property to
the state, and then been reimbursed. This is the intent for the 2861 parcels owned by the
county/MCLA in the Florida Forever projects. The assessed value for all vacant lands to be
acquired by the state in Florida Forever projects within unincorporated Monroe County is
approximately $67 million.
Some lands in Tier I were not included in Florida Forever. The "Tier I FL Forever Opt -out Areas
and FNAI Low" were not included in Florida Forever because the landowners chose not to have
their lands included, or the lands were ranked as a low priority by the Florida Natural Areas
Inventory (FNAI). FNAI evaluates and makes recommendations for all lands proposed for
Florida Forever. Some landowners may change their mind and want to be included in Florida
Forever. It may be possible to adjust the Florida Forever boundaries later to include these. If
so, Florida Forever would likely participate in acquisition of these lands.
The "Tier I FL Forever Left -Out Areas" represents parcels that appear to have been included in
Florida Forever according to some maps, but have been left out of the Florida Forever's parcel
list. This issue is being discussed with Florida Forever staff.
The Tier I lands not included in Florida Forever total approximately 727 parcels with 688 acres
and an assessed value of $12 million. Florida Forever may participate in the acquisition of
some of these lands, but the majority of the cost may be the county's responsibility.
Within Tier II (Big Pine and No Name Keys), there are 504 parcels with an assessed value of
approximately $15 million. It will likely be the county's responsibility to fund and acquire these
lands. Tier III -A (Special Protection Areas) totals 393 parcels with an assessed value of
approximately $14 million. Again, this would be the county's responsibility to fund and acquire.
Based on the tax assessed value, approximately $853 million dollars worth of land (both vacant
and improved) has been identified within areas of conservation interest in the unincorporated
Monroe County. Considering only the vacant lands and omitting Monroe County/MCLA lands
outside of Florida Forever projects, the total assessed value is about $108 million (10,151
parcels). Vacant Tier I lands within Florida Forever project boundaries have a tax assessed
value of about $67 million. Based on the 2005 tax assessed value, approximately $40 million
would be necessary to acquire the 1624 parcels of vacant Tier I areas not included of Florida
Forever, vacant Tier 11 lands and vacant Tier 111-A lands that are not already owned by the
county/MCLA.
Calculations can also be made using the mean value of parcels recently acquired by Florida
Forever, which has been acquiring land in Tier I. For the 1989 parcels acquired since
December 2003, the mean price per parcel is approximately $24,200 for land costs. Using this
figure, the cost of the 8527 remaining vacant Tier I parcels within the Florida Forever boundary
is approximately $206 million. More recently, parcels have averaged about $35,000 each.
Using this figure, the total would be approximately $298 million. Again, the 8527 vacant parcel
number does not reflect state acquisitions since about July 2005 or parcels that are under
contract. In addition, some of these parcels were acquired by Monroe County or MCLA. These
parcels are usually conveyed to the state on an at -cost basis, which would be lower than the
current fair market value.
Monroe County Land Acquisition and Management Master Plan DRAFT
Using this same $35,000 per Tier I parcel, the cost of the 727 parcels of Tier I private vacant
lands outside of Florida Forever would cost about $25 million, rather than the assessed value of
$12 million.
The state's mean cost for Tier I parcels may not be as accurately applied to Tier II and Tier III -A
lands. Using this just for a very rough estimate, the cost for the 897 vacant private parcels in
these categories would total about $31 million.
Table 1. Conservation -related Tier lands, assessed values, and anticipated funding
source
Tier
Anticipated
Anticipated
Acres
Parcels
Assessed Value
Purchasing
Funding
(July 2005)
Program
Source
Tier I FL Forever - all
10,472
9,535
$389,623,349
parcels
Tier I FL Forever
Florida
FL Forever
8310
5666
$38,852,086
Areas — private
Forever-
funds
vacant parcels
BOT
Tier I FL Forever -
Florida
FL Forever
1143
2861
$28,317,716
Monroe County/
Forever-
funds
MCLA parcels
BOT
Subtotal vacant Tier 1
9453
8527
$67,169,802
FL Forever lands
Tier I FL Forever Opt-
Florida
FL Forever
475
496
$7,478,996
Out Areas & FNAI
Forever-
/local funds
Low — private vacant
BOT/
parcels
MCLA or
county
Tier I FL Forever
Florida
Local / FL
213
231
$4,731,184
Left -Out Areas
Forever-
Forever
private vacant
BOT/
funds
parcels
MCLA or
county
Subtotal Tier I not FL
688
727
$12,210,180
Forever
Tier 11 Big Pine/No
MCLA or
Local funds
97
504
$14,670,719
Name Keys — private
county
vacant parcels
Tier III -A SPA —
MCLA or
Local funds
120
393
$13,593,573
private vacant
county
parcels
Totals for vacant
10,358
10,151
$107,644,274
parcels
Sources: Monroe County Property Appraiser, 2005; Monroe County GIS; Florida Forever parcel list
Table does not reflect all Florida Forever land acquisitions to date
It is possible that a significant number of lots may be donated to the county over the years
through the ROGO evaluation process. Through 2004, 644 lots were donated (see also
Muller and Associates, Inc. DRAFT 28 July 2006 9
Monroe County Land Acquisition and Management Master Plan DRAFT
Retirement of Development Rights, ROGO lots, below). In addition, only about 25% of
landowners are currently accepting Florida Forever's purchase offers. So it is likely that not all
landowners outside of Florida Forever lands are willing to sell, at least in the near future.
Conservation Land Management
Conservation Land Management Entities
The major upland conservation land management entities in the Florida Keys are the U.S. Fish
and Wildlife Service and the Florida Park Service (Florida Department of Environmental
Protection Division of Recreation and Parks). Other managers include the Florida Fish and
Wildlife Conservation Commission, The Nature Conservancy, Monroe County/Monroe County
Land Authority, Florida Audubon, and Florida Land and Sea Trust. FWS manages
approximately 23,200 upland (above mean high water) acres in the National Wildlife Refuges in
the Keys. The Florida Park Service manages approximately 8300 upland acres and FWC
manages approximately 2300 acres. Monroe County and Monroe County Land Authority
manage approximately 2000 acres of conservation lands scattered throughout the Keys. The
Nature Conservancy manages approximately 1300 acres of land. Other conservation -related
entities each manage fewer than 1000 upland conservation acres.
The Nature Conservancy and the Audubon Society are also active in assisting local landowners
and land managers to improve natural resource protection and management through providing
information, raising grant funding for projects, organizing volunteers, and participating in local
land management groups. The Keys Environmental Restoration Fund, managed by Audubon of
Florida, is devoted exclusively to the restoration, enhancement and management of Florida
Keys natural areas. Funding for projects is obtained through grant sources, state and federal
permit mitigation fees, fines and penalties levied for un-permitted development, and private
donations. The Fund has completed 27 restoration projects, with another 17 active projects in
various stages of planning and phased restoration. The majority of restoration projects occur on
publicly owned lands.
Monroe County now manages approximately 2000 acres of conservation lands. The Monroe
County Land Steward, supervised by the Monroe County Land Authority, oversees the
management and protection of county natural resource and environmentally sensitive lands.
Conservation lands management includes physical management, natural resource
management, as well as planning activities. The steward works with the Public Works Division
and the Planning and Environmental Resources Department. Some management funds come
from Monroe County's Land Restoration and Management Fund. The main management
issues faced by the steward are exotic and feral species, fire management in the Lower Keys
pinelands, vegetative restoration, surface and groundwater hydrologic restoration, dumping and
encroachment by adjoining landowners.
Conservation land managing agencies and organizations in the Keys cooperate through two
loosely structured groups. The Florida Keys Invasive Exotics Task Force, coordinated by the
Nature Conservancy, addresses the problem of invasive exotic plant species in the Keys.
Membership includes FWS, FWC, DEP, Florida Park Service, local land managers such as
Monroe County and interested members of the public. The task force meets quarterly. This
group has been very effective in setting invasive species control priorities in the Keys and
obtaining funds from the DEP Bureau of Invasive Plant Management.
10
Monroe County Land Acquisition and Management Master Plan DRAFT
The Keys Wildland Fire Hazard Reduction Initiative includes FWS, FWC, FL Division of
Forestry, DCA, The Nature Conservancy, local governments and interested citizens. The
purpose of the group is to more effectively and safely manage fire as a restoration tool, to
reduce and mitigate hazards associated with planned burns, and to educate the public on the
need for fire in pineland ecosystems. The group deals primarily with Lower Keys pinelands,
which require fire management to maintain or restore the ecological characteristics for which the
pinelands were acquired.
TNC's GreenSweep volunteer program works on priority land management projects, especially
those involving invasive species control, fire hazard reduction and native plant restoration.
County Conservation Land Management Policy
County policy calls for conservation lands acquired through the Monroe County Land Acquisition
Program to be managed to restore, preserve and protect the conservation purposes for which
the lands were acquired. The Comprehensive Plan also calls for a cooperative land
management program for publicly owned lands. The expectation is that state and federal
agencies will participate in formulating land management policies and plans and in the
management of lands. The land management plan(s) will address important conservation land
management issues, including control of invasive exotic species, utilization of prescribed fire,
restoration of disrupted wetland and native upland vegetation systems, and protection and
restoration of the freshwater lens and freshwater wetlands on public lands.
Estimated Future County Conservation Land Management Obligations
Land Management
At Monroe County's request, the Florida Forever program added approximately 3500 acres to
Florida Forever projects in the Keys. Although state and federal agencies will manage a small
portion of these lands after acquisition, the vast majority will be managed by Monroe County, as
agreed to in County Resolution 219-2004. In addition, approximately 688 acres of vacant Tier
I lands not owned by the county/MCLA are outside of Florida Forever (Tier I Florida Forever opt -
out lands plus those excluded by Florida Forever). Vacant Tier 11 lands (not owned by the
county/MCLA) total approximately 97 acres, and vacant Tier 111-A lands (not owned by the
county/MCLA) total about 120 acres. County policy directs that these lands be conserved
through acquisition or other means. Assuming these lands are eventually protected, Monroe
County and the MCLA would be responsible for managing approximately 4400 acres, in addition
to the 2000 or so conservation acres already managed by the county/MCLA. It is anticipated
that some of the Tier 11 lands, which are located on Big Pine Key and No Name Key, will be
managed by National Key Deer National Wildlife Refuge.
The cost to manage conservation lands in the Keys varies widely and depends on a number of
factors, including parcel size, proximity to other conservation lands, types of natural
communities, condition of natural communities, invasive exotics, level of public visitation, and
facilities. Generally, initial management costs are higher due to initial invasive exotic species
treatment, fire break installation and prescribed fire or mechanical treatment (if applicable),
cleanup of site and fencing. Vegetative and hydrologic restoration costs can add substantially
to the expense. Maintenance costs are generally much lower after initial management activities
are completed, except in developed subdivisions where property encroachments and illegal
dumping are more common concerns. The approximated costs presented below are very rough
Muller and Associates, Inc. DRAFT 28 July 2006 11
Monroe County Land Acquisition and Management Master Plan DRAFT
estimates based on information provided by experienced Keys conservation land managers.
These rough estimates are for lands that receive little public visitation. The estimates assume
that some support will be provided by non -governmental organizations and other governmental
organizations, and that some grant support will be obtained.
Table 2. Rough estimates of initial and maintenance annual costs per acre for
conservation lands in the Florida Keys
Natural Community Type
Initial annual
costs/acre (1-3 yrs)
Subsequent annual
management costs/acre
mangrove
$200
$20
hammock
$600
$100
pineland
$1200
$300
Assumes assistance from non -governmental organizations and some grant support.
Assumes low level of public visitation.
Monroe County and MCLA manage approximately 2000 acres of conservation lands. The
annual budget is approximately $300,000. Some of the funds come from the county's Land
Restoration and Management Fund. A grant from DEP Bureau of Invasive Plant Management
funds two additional positions plus a contractor to treat invasive plants on Monroe County and
MCLA lands until about 2014.
Eventually, Monroe County/MCLA may be responsible for managing up to 6400 acres (2000
existing acres plus 4400 acres to be acquired). The approximate ratio of land cover types within
environmentally sensitive areas to be acquired is 70% mangrove, 25% hammock and 5%
pineland. Assuming the lands that the county will manage have this same proportion, a very
rough estimate of the annual maintenance cost in today's dollars would be $345,600. Additional
funds, estimated at $2.2 million, would be needed for initial maintenance costs. These figures
assume that all of the Monroe County Florida Forever boundary amendment Tier I lands, Tier I
lands outside of Florida Forever boundaries, Tier 11 lands and Tier III -A lands are acquired, an
unlikely scenario. Given DEP's current success rate of about 25% on offers extended to
landowners, an annual conservation lands management cost estimate for the existing 2000
acres plus one-fourth the remaining lands to be acquired, or $167,000, may be more realistic.
This figure does not include initial management costs. Additional land management costs may
be incurred for management of acquired or donated lands that are important to limit
development in the Keys, but do not have intrinsic conservation value.
Table 3. Rough estimate of continuing management costs for environmental land potentially to
be managed by Monroe County
Natural
Estimated no.
Estimated
Estimated
Estimated mgmt
Estimated
community
acres to be
initial mgmt
continuing
cost/yr if all
cost/yr if 25% of
type
managed if all
costs
mgmt
acres acquired
remaining acres
acquired
cost/acre/yr
acquired*
Mangroves
4480
896,000
20
89,600
Pinelands
320
384,000
300
96,000
Hammock
1600
960,000
100
160,000
Total
6400
2,240,000
345,600
167,000
Pinelands, hammock, and mangrove categories are aggregated land cover type groupings that include some other land cover types.
Assumes assistance from non -governmental organizations and some grant support not represented in these estimates. Assumes
low level of public visitation.
'Monroe County/MCLA presently own and manages about 2000 acres; the 25% figure is based on those 2000 acres plus 25% of
additional lands that may be acquired
Muller and Associates, Inc. DRAFT 28 July 2006 12
Monroe County Land Acquisition and Management Master Plan DRAFT
Land Management Planning
Land management planning is an integral part of managing conservation lands. By state law,
Monroe County/MCLA will need to prepare a land management plan within a year of signing a
lease to manage state-owned conservation lands (i.e., lands acquired by Florida Forever as
requested in Monroe County's boundary amendment). These plans must go through a state
approval process, and are to be updated every 10 years. The plan must also be updated if
facilities are proposed that were not included in the approved management plan or if the land
management is intended to vary from that described in the approved plan. State-owned land
leases greater than 1000 acres are also evaluated by a land management review team at least
every five years to ensure that the lands are being managed in accordance with the approved
management plan and consistent with the purposes for which the land was acquired.
For environmental lands acquired by Monroe County/MCLA, county policy is that the county
and cooperators will develop a planning process for publicly owned native lands. The process
will be flexible to adapt to new information and acquisitions. Management plans, developed in
coordination with managers of adjoining lands, will address protection, restoration and
management of acquired lands. Management plans will be reviewed every three years and
revised as needed.
Affordable Housing Land Acquisition
Affordable housing is not an issue that can be defined along municipal lines. Many of the
people working in Key West, Marathon, and Islamorada live in unincorporated Monroe County,
and vice versa. The BOCC and Monroe County Workforce Housing Task Force recognize this
and recommend joint affordable housing efforts among the communities of the Keys. For
example, the MCLA has bought land for affordable housing in Marathon that was conveyed to a
community -based housing group, and plans to purchase affordable housing land in Islamorada
as well. Key West and Monroe County each have interlocal agreements with the local Housing
Authority, which manages publicly -owned affordable housing in Monroe County and applies for
state funding for local government housing activities. DCA has encouraged cooperation on
affordable housing between Keys local governments and indicated that such coordination could
result in additional affordable housing ROGO allocations.
Workforce Housing Task Force
Monroe County has an active Workforce Housing Task Force, formed in July 2005. The Task
Force made a series of recommendations to the BOCC in February 2006. In their
recommendations, the Task Force cited the Shimberg Study finding of a deficit of 6500
affordable housing units in the Keys. The Task Force decided that the construction of 5000
affordable housing units in the next decade is a reasonable goal.
Implementation of Task Force Recommendations
Monroe County has taken tangible steps to implement many of the Task Force's
recommendations. A Division of Housing and Community Development was established, with
Muller and Associates, Inc. DRAFT 28 July 2006 13
Monroe County Land Acquisition and Management Master Plan DRAFT
James "Reggie" Paros as the Director. Mr. Paros' job is to act as the catalyst to implement
affordable housing initiatives. He also chairs the Housing Task Force.
Jerry Coleman, Esq., has been retained to assist the Task Force by drafting the
recommendations into local ordinances, and a schedule has been established for implementing
the ordinances. The county intends to act on 15 ordinances related to affordable housing by
June 2006. One of the planned amendments will address coordination among Keys local
governments with respect to affordable housing.
In February 2006, the county issued a Request for Qualifications for entities interested in
developing and constructing affordable and workforce housing units for rental with restricted
rental rates at four locations owned by the county. One corporation, the Carlisle Group,
responded.
One of the ordinances already approved (Ordinance 005-2006, March 2006) is the Purchase
and Development Program ordinance. A Request for Proposals to assist in implementing the
ordinance was issued shortly after approval. Under this program, the county may purchase land
suitable for affordable housing at 65% or less of appraised value. The county then leases the
property back to the landowner or other entity for development of affordable housing. After
development, the land is owned by the county and the improvements can be sold or rented as
affordable housing. The land would be leased to the homeowner for a minimal fee.
Affordable housing land acquisition -related recommendations are addressed in Tools for Land
Acquisition and Management, below.
Land Acquisition
Monroe County, through the MCLA, is active in acquiring land for affordable housing, with an
emphasis on workforce housing. Subsequent to signing the cooperative agreement with DCA,
the county investigated issuing a $10 million bond for affordable housing using MCLA's revenue
stream, but discovered that statutes require that the bonding of MCLA funds be done through
the state. After discussions with the Florida Division of Bond Finance, the bonding proved to be
unfeasible due to the relatively small size of the proposed bond and other factors. The BOCC
decided to use approximately $3 million from the MCLA's ROGO reserve to purchase land for
conservation and affordable housing.
The county had developed a list of potential affordable housing sites in January 2001 and had
since provided periodic reports to DCA concerning progress on acquiring these lands. Year
Eight of the Work Program for the Florida Keys requires identification of potential acquisition
sites for affordable housing proposals and inclusion in the Land Acquisition Master Plan (28-
20.110(1)Policy 101.2.13, Florida Administrative Code). Subsequent to the signing of the
cooperative agreement with DCA, Monroe County and the MCLA initiated an analysis of all
vacant lands in the county as potential locations for multi -unit affordable housing. The criteria
used were suburban commercial and mixed use zoned vacant parcels, non waterfront, Y2 acre
or greater, and not containing native upland habitat patches of 1 acre or more. Only about 32
parcels totaling 36 acres were identified. Inspection of the potential parcels revealed that more
than three -fourths were not available or feasible due to such things as presence of wetlands,
use as essential storage for adjacent commercial operations, and required open space.
Muller and Associates, Inc. DRAFT 28 July 2006 14
Monroe County Land Acquisition and Management Master Plan DRAFT
Given the small number of potential sites, the county and MCLA elected not to advertise their
interest in the sites through a public list for fear of increasing competition from other potential
buyers. The county or MCLA has purchased two of the sites and another entity has purchased
one of the sites for affordable housing. The county and MCLA are still pursuing several of the
sites. It appears that redevelopment of sites will be a essential strategy in providing multi -unit
affordable housing in the Keys.
From January 2004 through December 2005, the county/MCLA spent $7.5 million on land for
affordable housing. As of January 2006, 11 sites were planned for affordable housing
development in Monroe County. The county owns five sites totaling approximately 5.5 acres,
which are intended to provide 70 affordable housing units. Plans for six privately -owned sites
totaling 12.4 acres are underway; these projects are intended to provide 323 affordable housing
units. Two additional affordable housing acquisitions totaling more than $2.5 million, mostly for
land, are planned for 2006. The affordable housing expenditures and planned acquisitions total
more than $10 million, the amount cited in the agreement with DCA.
Addressing part of the Cooperative Agreement between the county and DCA, the state plans to
make funds available for affordable housing through the Florida Housing Corporation (FHC).
The response by Monroe County entities to the FHC's initial request for proposals (RFP) in
October 2005 was not entirely successful due to restrictions associated with the RFP and
hurricane -related activities. The RFP could only be used for affordable housing by a
community -based entity and the income restrictions for occupants of the funded housing were
too low to allow the housing to be used as workforce housing.
Only approximately $1.75 million of the $4 million reserved for Monroe County was successfully
accessed in this RFP process. The MCLA had purchased land for affordable housing and
conveyed it in August 2005 to a community -based group for development. However, the
October 2005 RFP did not allow for reimbursement of those land costs, which would have then
been used to construct affordable housing.
Given that Monroe County has the one of the worst income to housing expense ratios in the
state, Monroe County felt the 2005 RFP was too restrictive. Monroe County representatives
held discussions with the FHC. A new RFP has been issued (FHFC RFP 2006-03) which, for
the Florida Keys only, allows funding to be used for rehabilitation and new construction if the
offeror has title to the land. Of the $4.9 million available statewide, $2.2 million is reserved for
the Keys. Indications are that qualifying Monroe County entities should receive approximately
$4 million/year for the next five years, for a total of $20 million in affordable housing assistance
through the FHC. Monroe County intends to facilitate establishment of a qualifying affordable
housing entity for the Upper Keys to be eligible to participate in the next RFP.
The Monroe County Housing Authority sometimes buys land for affordable housing, often with
buildings already in place. There is very little vacant land in unincorporated Monroe County
suitable for multi -unit affordable housing. Targeting just these lands alone will not be sufficient
to substantially alleviate the housing problem. It is likely that redevelopment of existing
properties and acquisition of single home lots will also be necessary.
Estimated Future County Affordable Housing Land Needs
The MCLA recently purchased six vacant land properties (four multi -family and two single
family) and one developed multi -family property for affordable housing. The mean cost per unit
15
Monroe County Land Acquisition and Management Master Plan DRAFT
of the vacant lands was about $52,000. It appears that the cost/unit for single family properties
will be higher than for multi -family properties. The sole developed multi -family property cost
about $104,000/developed unit. Based on the mean cost/unit for vacant land for the recently
acquired projects, the cost of just the land for the 5000 affordable housing units targeted by the
Workforce Housing Task Force would be about $260 million. The Task Force has made several
recommendations that could substantially reduce the cost per unit for affordable housing land.
These are addressed in "Tools for Land Acquisition and Management".
Retirement of Development Rights
Administrative Relief
Unincorporated Monroe County has 197 residential dwelling allocations available for distribution
each year through the Rate of Growth Ordinance (ROGO) process; a minimum of 71 of these
are reserved for affordable housing. Applicants who have applied for a ROGO allocation for
permission to build residential buildings in unincorporated Monroe County for four successive
years and have not received a building allocation are eligible to apply for administrative relief.
This relief may be an offer to purchase the property for fair market value, which must be at least
the tax assessed value. The Board of County Commission has other relief options, including
awarding the applicant an allocation or other measures the BOCC deems necessary and
appropriate.
In anticipation of this expense, the county established a policy for creating a reserve for ROGO
administrative relief land purchases. Starting in 1993, the MCLA set aside 35% of its recurring
revenue, about $400,000/year, in a reserve. From 1993 to 2003, MCLA purchased property
from six ROGO administrative relief applicants for a total cost of $800,000. All but $12,000 of
this was ultimately paid with state funds, primarily Preservation 2000 funds. No additional
administrative relief land purchases have been made through May 2006. Almost all land
involved in administrative relief since 2003 has been in Tier III subdivisions, and the BOCC has
been giving allocations rather than making purchase offers. The BOCC has the authority to
spend the ROGO reserve on other acquisitions, and in 2005 spent $3 million of the $4.25 million
reserve on land for affordable housing and conservation. As of April 2006, the ROGO reserve
stands at $1.7 million.
It is difficult to estimate the timing and amount of funds that may be needed to provide
administrative relief for ROGO. Numerous factors are involved. In an August 2003 memo to
the County Administrator, the Executive Director of the MCLA cited the following factors: 1) how
many property owners will choose to enter the ROGO competition; 2) how many ROGO
allocations will be available for the county to issue; 3) which applicants will compete
unsuccessfully for four years and become eligible for administrative relief; 4) which of the
eligible applicants will choose to apply for administrative relief; 5) what form of administrative
relief the Board will choose to offer; 6) how many eligible applicants will be willing sellers; and 7)
the purchase price for a given property. In addition, there are often lawsuits in progress related
to the ROGO system and the comprehensive plan and these may result in directed or settled
awards. Some of the parcels that go through the ROGO process are in Tier I and in Florida
Forever project boundaries, and the state may be willing to pay the administrative relief costs for
purchasing these lots.
16
Monroe County Land Acquisition and Management Master Plan DRAFT
Recent ROGO Applications
In the ROGO ranking approved by the County Planning Commission for Year 14 Quarter 2
ROGO (period ending January 13, 2006), 591 of the 630 applicants were denied a ROGO
allocation. Of the applications, 565 were rollovers or reapplications from previous quarters.
One hundred thirty of the rollovers/reapplications were first submitted in 2002 or earlier,
meaning they are now or this year will be eligible for administrative relief. In addition, 120 of the
unsuccessful applications were submitted in 2003, meaning they will be eligible for
administrative relief in 2007 if not granted an allocation before the end of that year.
These numbers can assist in providing a very rough estimate of administrative relief that may be
required in the near future. Assuming an assessed value of $117,000 per parcel, the 130 relief -
eligible parcels have an assessed value of approximately $15.2 million. If the 120 "three-year
old" applicants stay in the process for the next cycle and are unsuccessful in being awarded an
allocation, the assessed value for these additional parcels total $14.0 million. The assessed
value of the parcels of all 250 applications is estimated to be $29.2 million. However, local
ordinance requires that applicants eligible for administrative relief must apply within 90 days
after having been denied an allocation for four consecutive years, so these potential payments
do not accumulate from year to year.
When the Board of County Commissioners grants administrative relief by awarding an
allocation, this allocation is subtracted from those available through the normal allocation
process.
ROGO Lots
One way that applicants can score higher in the ROGO process is to purchase undeveloped lots
and donate these to the county. From 1996 through 2004, a total of 644 lots were donated to
the county as part of the ROGO process, an average of 72 each year. Once publicly held,
these lots are removed from the overall inventory of private buildable land and therefore do not
need to be acquired for the purposes of growth management or to retire private property rights.
Potential Future County Retirement of Development Rights Needs
The estimated cost to acquire environmentally sensitive lands in Tier I, Tier II and Tier III -A
unincorporated Monroe County is addressed in "Estimated Future County Conservation Land
Acquisition Obligations", above. ROGO-related restrictions also raise the potential that
additional non -environmentally sensitive land parcels will need to be purchased for retirement of
development rights.
Currently, approximately 4,950 Improved Subdivision (IS) lots are designated as Tier III and
available for housing. Assuming the number of available residential building permit allocations
for unincorporated Monroe County remains at 197 per year, 3940 allocations will be available
during the next 20 years. This leaves approximately 1000 Improved Subdivision lots that may
either need to be acquired for property rights issues, may be donated or aggregated as part of
ROGO, or will not be developed within the next 20 years.
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Monroe County Land Acquisition and Management Master Plan DRAFT
Development trends, ROGO donation and aggregation, and other issues make estimating
acquisition needs for retirement of private property rights difficult but it can be assumed that
some parcels will need to be acquired for retirement of private property rights. From about
October 2005 through March 2006, the average sale price of a buildable lot in unincorporated
Monroe County was approximately $117,000, excluding waterfront sales. If the average cost
per vacant lot in Tier III is $117,000, a rough estimate of the approximate cost of these 1000 lots
in today's dollars is $117 million. Purchasing of development rights due to lawsuits would likely
have a higher cost per parcel.
Summary Of Fundina Needs
The following table (Table 4) summarizes the rough estimates of funds that may be needed for
land acquisition and environmental land management. As noted in the sections above, there
are many caveats associated with these estimates that should be considered when reviewing
the numbers. It is unlikely that all landowners will sell their holdings, so 25% of the total
estimated cost is also presented.
The total estimated cost of lands to be acquired through Florida Forever, based on recent
Florida Forever acquisitions at an average of $35,000/parcel, is $298 million. This figure does
not take into account recent Florida Forever purchases or contracts and assumes that all vacant
lands within the Florida Forever boundary will be acquired. The total cost of conservation lands
to be acquired by Monroe County/MCLA based on the $35,000/parcel figure is $57 million.
These lands are not all in Tier I and may cost more to acquire. Florida Forever may assist with
the acquisition of a portion of the Tier I lands currently outside of Florida Forever boundaries.
Land for the 5000 affordable housing units targeted by the Workforce Housing Task Force
would cost approximately $260 million, based on recent purchases. Federal and state funds are
available for a portion of these costs, but substantial local funds will be needed. Retirement of
development rights, based on the recent average sale price of $117,000 per parcel for buildable
lots is very roughly estimated at $117 million. It is likely that local sources will have to pay for
most of this. If all targeted environmentally sensitive lands outside of Florida Forever, lands for
affordable housing, and the retirement rights of 1000 lots were acquired, the estimated cost is
approximately $434 million.
A rough estimate of county costs for managing conservation lands is $345,600 per year, $9.1
million over 20 years, based on acquisition of all parcels targeted for conservation and
assuming that all lands are acquired immediately. The 20-year estimate includes the initial
management costs, which the annual estimate does not. Most of the management funds will
need to be generated from local sources.
Some of these projected costs will be mitigated by other actions. The local funds Monroe
County/MCLA used to buy lands within Florida Forever project boundaries may be reimbursed
and will then be available for other MCLA activities. ROGO lot donations will also reduce the
number of parcels to be bought for retirement of development rights. Some of the Workforce
Housing Task Force recommendations, if implemented, will reduce the amount of land that
needs to be purchased for affordable housing. These recommendations, additional ways to
potentially decrease costs and potential funding sources are presented in "Tools for Land
Acquisition and Management", below.
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Table 4. Rough estimates of funds that may be needed for conservation and affordable land
acquisition, conservation land management, and retirement of development rights
Category
Anticipated
Estimated
Estimated
26% of cost
Purchasing
cost/unit
Costs
for this
Program/ Funding
millions
category
Source
millions
Environmental lands
Acres
Parcels
Tier I FL Forever Areas
FL Forever-BOT/FL
9,453
8,527
$35,000
$298
to be acquired
Forever funds
FL Forever- BOT/FL
475
496
$35,000
$17.3
Tier I FL Forever Opt-
Forever funds/local
Out Areas
funds
Tier I FL Forever Left-
213
231
$35,000
$8.1
Out Areas
MCLA/Local funds
Tier 11 Vacant Big
97
504
$35,000
$17.6
Pine/No Name Keys
MCLA/Local funds
Tier 111-A SPA (Vacant
120
393
$35,000
$13.8
Parcels)
MCLA/Local funds
Subtotal environmental
10,358
10,151
$354.8
$88.7
lands
Affordable housing
Units
Estimated
land
land cost
MCLA/fed, state, local
5000
$52,000
260
65
& private
Retirement of
Parcels
Estimated
development rights
land cost
MCLA/local & state
1000
iLiz 000
ill7
29.3
Estimated total land
732
183
acquisition costs
Conservation land
Acres
Estimated
Estimated
management
annual
annual
cost/unit
cost
Local with some
320 acres
$300/ac/yr
$0.35
grants
pinelands,
pinelands,
1600
$100/ac/yr
hammock,
hammock,
4480
$20/ac/yr
mangrove
mangrove
Estimated
20-year
cost'
$9.1
$3.9
Tier and Florida Forever information generated using the Monroe GIS and information from DEP
Environmental land management costs only pertain to land owned by MCLA or Monroe County; does not include federal, state and
private organization costs to manage their lands.
Estimated annual environmental land management does not include initial land management costs
Estimated 20-year land management cost is calculated as though all lands were acquired in year 1 and includes initial mgmt costs;
the 25% figure is based on 2000 already owned acres plus 25% of additional lands that may be acquired
Estimates are in 2005 dollars
Pinelands, hammock, & mangrove categories are aggregated land cover type groupings that include some other land cover types
Conservation land management numbers are derived from Table 3
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Monroe County Land Acquisition and Management Master Plan DRAFT
Tools for Land Acquisition and Management
This section provides a summary of active funding and non -funding sources for conservation
land acquisition, conservation land management, affordable housing, and retirement of
development rights in the Keys. Partial lists of existing, currently untapped funding and non -
funding sources potentially available to assist with these activities are also provided. The
sources are not described in detail.
Some potential new funding sources are also suggested. Potential sources linked to specific
uses, if any, are addressed in the separate land acquisition and management sections.
Sources that could be used for multiple purposes are listed in the end of this chapter. For
sources that are not existing sources or are expansions of funding sources that do not have
severe restrictions, it may be possible to craft the funding program so that funds are available
for multiple purposes.
Conservation Land Acquisition
Types of Land Acquisition
Land acquisition is usually accomplished in two forms: fee simple and less than fee simple. In
fee simple, the buyer acquires all rights from the landowner seller. With less than fee simple,
the buyer acquires only some rights from the landowner. When this less than fee simple
acquisition is for conservation purposes, it is often called a conservation easement. A
conservation easement prohibits or limits development of the land and usually prescribes a
particular management regime or management results. Natural resource conservation
easements are generally negotiated for fairly large tracts of land. Monitoring by the easement
holder is required to ensure that the terms of the easement are followed.
Conservation Land Acquisition Entities
Conservation land acquisition entities and funding sources can be broadly grouped into four
categories: federal, state, local, and non -governmental organizations (NGOs), such as The
Nature Conservancy and the Conservation Fund. Entities in all four categories have been
active at some time in the Keys.
Land Acquisition Funding Sources and Programs Currently or Recently Used in the Keys
The activities of conservation land acquisition entities and levels of funding sources can ebb and
flow for a variety of reasons. Below is a partial list of land acquisition entities and funding
programs that are currently or were recently active at a significant level for conservation land
acquisition in the Florida Keys.
Federal
Currently no significant activity
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Monroe County Land Acquisition and Management Master Plan DRAFT
State
Florida Forever/Board of Trustees — three projects in the Florida Keys are on the Florida
Forever list and the state is actively trying to buy all lands within the project boundaries.
The Florida Forever/Board of Trustees program receives approximately $100
million/year for state-wide acquisitions; $93M has been pledged to the Keys projects.
Florida Communities Trust (used by other communities in the Keys, not currently being
accessed by the county) — land acquisition grant program that provides funding to local
governments and eligible non-profit environmental organizations for acquisition of
community -based parks, open space and greenways that further outdoor recreation and
natural resource protection needs identified in local government comprehensive plans .
The Florida Communities Trust receives approximately $66 million/year; each local
government can receive up to $6.6 million per year.
Local
• Monroe County Land Authority
• Tourist Impact Tax - room tax that provides approximately $1 million/year for a variety of
land acquisition purposes in Monroe County outside of Key West.
• State Park Entrance Fee Surcharges — provides approximately $400,000/year for the
MCLA and also county operations
• Land Acquisition Fund — ROGO applicants can be awarded up to two points for a
monetary payment by the applicant to the county's land acquisition fund for the purchase
of lands for conservation, and retirement of development rights. The monetary value of
each point is set annually by the county.
Non -governmental Organizations
• The Conservation Fund
• The Nature Conservancy
Trust for Public Land
Non -Funding Sources for Land Acquisition
Local
Donation of ROGO lots — ROGO allocation applicants can increase their scores by donating
undeveloped lots with certain characteristics to Monroe County.
Existing Funding Programs and Sources Not Being Used for Conservation Land
Acquisition in the Keys
A variety of existing funding programs and sources suitable for conservation land acquisition are
not currently being used in unincorporated Monroe County. Some are better suited for
conditions in the Keys than others. Not all of these programs target conservation lands, but can
be used for this in certain situations. Oftentimes, to be successful in obtaining funding, the
specific land parcel should be matched to a funding source. Below is a sampling of funding
programs and sources that are not being used in the unincorporated Monroe County but for
which the county may be eligible. In general, the amount of funds available through these
programs is much less than that available through Florida Forever. However, funds through
these programs can supplement Florida Forever funds, and may assist in the acquisition of
lands that Monroe County intends to purchase.
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Federal (many of these funds are distributed by state agencies)
• Hazard Mitigation Grant Program (HMGP) — projects must provide long-term solutions to
problems (for example, retrofitting of public facilities to reduce the risk of hurricane
damage) and may be used to protect either public or private property or to purchase
property that has been subjected to, or is in danger of, repetitive damage.
• Pre -Disaster Mitigation (PDM) Program - provides grants to tribes, states, and local
governments for cost-effective hazard mitigation activities that complement a
comprehensive multi -hazard mitigation program. Eligible projects are similar to those
under the HMGP. Funding under the PDM is not tied to a disaster. The program is
nationally competitive on an annual basis.
• Migratory Bird Conservation Fund/FWS - allows FWS to acquire important migratory
breeding areas, migration resting places, and wintering areas. Areas acquired become
part of the refuge system
• Cooperative Endangered Species Conservation Fund Act Program/FWS - provides
grants to states for Recovery Land Acquisition.
• State and Tribal Wildlife Grants/FWS - helps states and tribes to implement
comprehensive wildlife conservation plans and activities.
• Federal Aid and Wildlife Restoration — Grants to States - apportions funds to states and
territories for use in restoring and protecting wildlife.
• National Scenic Byways Program - provides grants in support of eligible projects,
including protection of natural resources in an area adjacent to a scenic byway.
• Coastal and Estuarine Land Conservation Program (CELCP) - provides matching funds
to states to acquire land or easements to protect or restore coastal areas that have
considerable conservation, recreation, ecological, or economic value and are threatened
by conversion from their natural state to other uses or could be managed or restored to
effectively conserve, enhance or restore ecological function.
• North American Wetlands Conservation Act/FWS - may fund the acquisition of habitat
for waterfowl and migrating birds in support of the North American Waterfowl
Management Plan
• National Marine Sanctuary/NOAA — funds may be available to acquire lands that are
essential to protecting the resources of the Florida Keys National Marine Sanctuary
• Readiness and Environmental Protection Initiative (REPI)/ U. S. Department of Defense
— funds may be available to help buffer Key West Naval Air Station.
• LWCF — funds may be available if line -item appropriations are restored for National Key
Deer Refuge or Great White Heron and Crocodile Lake National Wildlife Refuges.
State
• Florida Communities Trust
• Florida Forever/South Florida Water Management District (SFWMD) — current funds and
those in the near future are committed for acquisition of lands for the Comprehensive
Everglades Restoration Plan (CERP)
• Florida Forever Program Inholdings and Additions Programs — acquire inholdings and
additions to existing FDEP, FWC, and FL Division of Forestry conservation lands
• Florida Forever Office of Greenways and Trails Land Acquisition Program (FDEP) -
funds the statewide initiative to create a system of greenways and trails connecting
communities and conservation areas
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• Florida Recreation Development Assistance Program (FRDAP)/FDEP — funds the
acquisition or development of land for public outdoor recreation
Local — funding sources listed below are being used to fund other local government needs.
Eligibility to use these funds on conservation land acquisition may be restricted.
• Local Government Infrastructure Sales Surtax (Fund 304)
• Guaranteed Entitlement/Revenue Sharing
• Half Cent Sales Tax
• County Fuel Taxes
• Gas Tax Revenues
• Ad Valorem Revenues
New Funding Sources for Conservation Land Acquisition
Key Deer Habitat Conservation Plan Acquisition Fund
This fund, agreed to in the Key Deer Habitat Conservation Plan, is being established by the
county to provide mitigation for development on Big Pine Key and No Name Key. An ordinance
is being prepared that will affect 100-200 lots on these keys. An average of about $35,000 in
mitigation fees will be assessed per lot permit. Depending on the number of permits issued
under the ordinance, about $3.5 to $7 million will be collected and used for acquisition of land
on Big Pine and No Name Keys.
Keys Environmental Restoration Fund
The Keys Environmental Restoration Fund is primarily financed with mitigation funds from the
Army Corps of Engineers. Funds from this source are used for restoration; however, it is likely
that mitigation funds for acquisition of environmental lands soon may become available.
Discussions are underway, and The Nature Conservancy is likely to administer land acquisition
funds.
Conservation Lands Management of County or MCLA-owned Lands
Land Management Funding Sources and Programs Currently or Recently Used in the
Keys
In general, the agency managing conservation lands is responsible for providing the funds for
management efforts. The major federal and state government and non -governmental
organizations that manage land in the Keys, USFWS, FDEP, FWC and the Nature
Conservancy, obtain their own management funds.
Federal
• FWS National Wildlife Refuge — the federal government provides funds for management
of refuge lands
• Department of Defense — management of military lands is provided through the
Department of Defense, and must comply with federal laws such as the Endangered
Species Act and the National Environmental Policy Act (NEPA)
State
CARL Trust Fund — for state-owned lands managed by state agencies
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• FDEP Upland Plant Management Program — statewide funding program that funds
invasive plant management in the Keys on an annual basis, including salaries for two
technicians for initial control of invasive exotic plant species on county -owned lands
• FWC Gambian rat control — FWC is funding efforts to control this rodent in the Grassy
Key area
Local
Land Restoration and Management Fund/Monroe County — budgeted at $220,000 for FY
07, for restoration of county -owned environmental lands
Monroe County Land Steward — position funded by Monroe County and supervised by
Monroe County Land Authority
Non -governmental Organizations
• Keys Environmental Restoration Fund/managed by Audubon of Florida — funds from
grant sources, state and federal permit mitigation fees, fines and penalties levied for un-
permitted development, and private donations used for restoration, mostly on public
lands
• The Nature Conservancy — funds management activities on TNC lands
• Florida Keys Land and Sea Trust — management funds for Crane Point Hammock
Non -Funding Sources for Conservation Land Management
GreenSweep/The Nature Conservancy - this volunteer program puts people with an
interest in conservation to work on priority land management projects. GreenSweep
projects are focused on invasive species control, fire hazard reduction and native plant
restoration, primarily on public lands but to an increasing degree on private lands
adjoining public lands. GreenSweep is primarily funded by government grants and
contracts with limited private funding.
The Florida Keys Invasive Exotics Task Force and the Keys Wildland Fire Hazard
Reduction Initiative, described in "Efforts and Current Status", coordinate management
efforts for invasive plant species and wildland fire.
Existing Funding Programs and Sources Not Being Used for Conservation Land
Management in the Keys
Most land management funding programs do not provide money for continuing, maintenance -
type land management activities. These types of costs are expected to be borne by the local
managing agency. Funds are often available for one-time type projects, such as control of
exotic species and restoration, with the expectation that the local land manager will maintain the
resources after the project ends. Often these programs are targeted to volunteer efforts.
Federal (many of these funds are distributed by state agencies)
• NOAA Community -based Restoration Program - a grass -roots approach to restoration
by actively engaging communities in on -the -ground restoration of fishery habitats around
the nation
• USFWS Coastal Ecosystem Program - conserves fish and wildlife and their habitats to
support healthy coastal ecosystems. The FWS provides funding through the program to
22 high -priority coastal ecosystems, including the Florida Keys area as part of the
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Everglades/South Florida Ecosystem. Used by TNC for GreenSweep but underutilized
for many other possible activities.
• State and Tribal Wildlife Grants/FWS - helps states and tribes to implement
comprehensive wildlife conservation plans and activities.
• Federal Aid and Wildlife Restoration — Grants to States - apportions funds to states and
territories for use in restoring and protecting wildlife.
• Coastal and Estuarine Land Conservation Program (CELCP) - provides matching funds
to states to acquire land or easements to protect or restore coastal areas that have
considerable conservation, recreation, ecological, or economic value and are threatened
by conversion from their natural state to other uses or could be managed or restored to
effectively conserve, enhance or restore ecological function.
• National Coastal Wetland Conservation Grants/USFWS - to protect and restore coastal
wetlands
State
Florida Coastal Management Program (FCMP) — NOAA funds distributed to support
coastal management activities. Used by TNC for GreenSweep but underutilized for
Keys in general.
Florida Recreation Development Assistance Program (FRDAP)/DEP — funds the
acquisition or development of land for public outdoor recreation
Local — funding sources listed below are being used to fund other local government needs.
Eligibility to use these funds for retirement of development rights may be restricted.
• Local Government Infrastructure Sales Surtax (Fund 304)
• Guaranteed Entitlement/Revenue Sharing
• Half Cent Sales Tax
• County Fuel Taxes
• Gas Tax Revenues
• Ad Valorem Revenues
Private
• There are a variety of private foundations that provide funding for conservation
management -related activities, such as the National Fish and Wildlife Foundation.
Affordable Housing
Affordable Housing Land Acquisition Entities
In recent years, the Monroe County Land Authority has been the main entity purchasing land for
affordable housing in unincorporated Monroe County. The Monroe County Housing Authority
also purchases land for affordable housing on a limited basis. Land trusts can also purchase
land for affordable housing. Private individuals and corporations can also purchase lands for
affordable housing. Some ROGO allocations (71/year in unincorporated Monroe County) are
for affordable housing only, so this encourages private participation.
Because of the extreme difference between median income and median housing costs in the
Keys, Monroe County has chosen to focus affordable housing efforts on workforce housing.
Many of the standard affordable housing programs do not mesh well with this housing need
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Monroe County Land Acquisition and Management Master Plan DRAFT
because the program income standards are often for those with low and very low incomes, as
versus moderate incomes.
Affordable Housing Land Acquisition Funding Sources and Programs Currently or
Recently Used in the Keys
Federal
In general, for a community the size of Monroe County, federal housing funds are administered
by state housing programs.
State (mixture of state and federal funds, administered through state organizations)
• Community Development Block Grants (CDBG)/DCA - funding for housing and
community development
• State Housing Initiatives Partnership (SHIP)/Florida Housing Finance Corporation -
funds provided as an incentive to create partnerships that produce and preserve
affordable homeownership and multifamily housing
• HOME Investment Partnerships program (HOME) - assists with the construction of
homes or to provide purchase assistance to the homebuyer
• Section 108 Loan Guarantee Program (part of CDBG) - loan guarantee provision that
provides communities with a source of financing for economic development, housing
rehabilitation, public facilities, and large-scale physical development projects
Local
• Monroe County Land Authority - funds are used for acquisition of land for affordable
housing, as well as purchase of properties that have housing in place.
Non -governmental Organizations
• Habitat for Humanity of Key West and the Lower Florida Keys
• Habitat for Humanity of the Middle Keys
• Habitat for Humanity of the Upper Keys
• Bahama Conch Community Land Trust
• Florida Keys Community Housing and Land Trust, Inc. (affiliated with Habitat for
Humanity of Key West and the Lower Florida Keys)
• Habitat for Humanity of the Middle Keys Community Land Trust, Inc.
• Middle Keys Community Land Trust
Existing Funding Programs and Sources Not Being Used for Affordable Housing Land
Acquisition in the Keys
There are a variety of funding programs not being used in the Keys because the programs don't
match Monroe County's workforce housing needs. The MHCA retains consultants to help target
potential funding sources that match the Keys needs. MHCA also consults with the Florida
Housing Coalition for technical assistance.
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Monroe County Land Acquisition and Management Master Plan DRAFT
Potential Non -Funding Sources for Affordable Housing Land Acquisition
The Monroe County Workforce Housing Task Force suggested "adjusting the ROGO point
system to permit an award of six (6) points (in contrast to the current two (2) points) for the
donation of a `ROGO-lot' where no negative environmental conditions on the lot or other factors
would otherwise prevent the immediate construction of an affordable/workforce housing unit by
a qualified owner/developer." The benefit of this recommendation should be weighed against
the likelihood that fewer environmentally sensitive ROGO lots would be donated to the county,
with the county perhaps eventually needing to purchase those lots.
Some changes proposed by the Task Force would not result in the acquisition of more land, but
could lessen the need to acquire land for affordable housing by increasing density on affordable
housing lands. These proposals include:
• Allow density for affordable housing projects to be calculated on gross acreage vs. net or
open space requirement -based acreage
• Density bonuses calculated on the number of affordable units otherwise allowable on a
developable parcel
The City of Key West is considering easing height restrictions for affordable housing as a way of
increasing density on affordable housing lands.
Other Task Force proposals would result in less affordable housing land needing to be
purchased. These include:
• Negotiate to extend the length of time for restrictions on affordable housing with non-
permanent restrictions — would result in existing affordable housing staying affordable for
a longer period of time
• "Save Our Homes" -type ad valorem property tax increase limitation on rental affordable
housing to encourage the housing to remain affordable
More detailed information is available from the Workforce Housing Task Force.
Technical assistance regarding affordable housing funding is available through the Florida
Housing Coalition.
Retirement of Develoament Riahts
Entities Involved in Retirement of Development Rights
In recent years, the Monroe County Land Authority has been the main entity purchasing land
related to retirement of development rights in unincorporated Monroe County. The Monroe
County Board of County Commission makes decisions regarding retirement of development
rights for landowners whose property has been denied an allocation award for four successive
years in the Residential (ROGO) or Non-residential (NROGO) Permit Allocation System and
meets other requirements. One of the remedies is for the BOCC to request the Monroe County
Land Authority to offer to purchase the land. If the parcel is acquired and is within a Florida
Forever project, the state may reimburse the MCLA for the acquisition.
The county also has a beneficial use procedure through which an owner of real property may
apply for relief from application of land use regulations or the Comprehensive Plan when such
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Monroe County Land Acquisition and Management Master Plan DRAFT
application would have the effect of denying all economically reasonable use of that property
unless such deprivation is shown to be necessary to prevent a nuisance or to protect the health,
safety and welfare of its citizens under Florida Law. Again, one of the remedies is for the
BOCC to request the Monroe County Land Authority to offer to purchase the land. Again, if the
parcel is acquired and is within a Florida Forever project, the state may reimburse the MCLA for
the acquisition.
A landowner may also file a lawsuit against the county related to ROGO, NROGO, or beneficial
use. In this case, the state may become involved because of the influence of the Area of
Critical State Concern designation on the county's comprehensive plan.
Funding Sources Currently Being Used
State - If MCLA purchases parcels within Florida Forever project boundaries for retirement of
development rights, MCLA may be reimbursed by the Florida Forever/BOT program
Local — MCLA funds are currently used for retirement of development rights.
Existing Funding Sources Not Being Used
There are no funds specifically available for retirement of development rights that are not being
used at this time. Funding sources listed below are being used to fund other local government
needs. Eligibility to use these funds for land for affordable housing may be restricted.
• Local Government Infrastructure Sales Surtax (Fund 304)
• Guaranteed Entitlement/Revenue Sharing
• Half Cent Sales Tax
• County Fuel Taxes
• Gas Tax Revenues
• Ad Valorem Revenues
Non -funding Sources
The Monroe County Comprehensive Plan describes two non -funding remedies for retirement of
development rights — granting of a permit for development from the ROGO/Permit Allocation
System (described previously) and granting of transferable development rights (TDRs).
According to a Monroe County staff analysis, the TDR program is intended "to mitigate the
impact of new development regulations on development expectations and property rights by
allowing rights to be transferred (or sold) from properties which are precluded from
development." TDRs have been used in Monroe County, but not to a great extent.
Potential New or Increased Funding Sources for Conservation Land Acquisition
and Management, Affordable Housing, and Retirement of Development Rights
A variety of new funds and funding sources for land acquisition and management and retirement
of development rights is possible. One of the simplest ways to increase available funds can be
to increase the funds from an existing source. However, some funding sources may be at a
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Monroe County Land Acquisition and Management Master Plan DRAFT
statutory cap, and one or more statutes may have to be revised to increase funding. Depending
on how a funding source is developed, it could be available for conservation land acquisition,
conservation land management, affordable housing, and/or retirement of development rights.
In general, any new taxes require state legislation, a vote of the Monroe County Board of
County Commissioners, and approval in a public referendum. Depending on the wording in the
legislation, if a tax is being increased a referendum may not be required.
Another tack is possible if non -restricted local funds are now being spent on certain budget
items for which restricted funds taxing authority is available. In this case the restricted funds
taxes could be increased and the additional revenue could be used to fund budget items that
are currently being funded by unrestricted funds. These unrestricted funds could then be used
for affordable housing, environmental lands acquisition and management, and retirement of
development rights. For example, if general funds are being used to fund transportation
projects, it may be possible to increase revenues from sources restricted to transportation
projects, such as gas taxes, and then apply the freed -up general funds to affordable housing.
A partial list of new or increased funding sources is presented below. Some notes are included
if a source seems more logically linked to particular needs. The recommendations of the
Workforce Housing Task Force are included. All of the potential sources should be investigated
in more detail rather than relying on the brief outlines provided.
Potential Local Funding Sources
Authorization and Adoption of a (or an Additional) Local Option Sales Tax
A local option sales tax (addition) could be structured to address conservation land acquisition
and management, affordable housing, and retirement of development rights. This was one of
the Workforce Housing Task Force's recommendations to provide funds for affordable housing.
If the local option sales tax is at the maximum statutory limit, it would probably require state
legislation, a referendum, and BOCC votes to increase the tax.
Authorization and Adoption of an Additional "One -Penny" to the Tourist Development ("Bed")
Tax
The Workforce Housing Task Force's recommendations to provide funds for affordable housing
included a suggestion that an additional amount could be added to the Tourist Development
Tax. As currently written, proceeds from this tax (125.0104, FL Statutes) are restricted to be
spent on tourist development, such as convention centers, sports arenas and tourism
advertisements. It is likely the Task Force meant the Tourist Impact Tax (125.0108, FL
Statutes), which is used to fund the land authority and to offset the loss of ad valorem taxes due
to acquisitions through the Tourist Impact Tax. The county's current tax rate is at the statutory
maximum, so an increase would require state legislation. A change in how the proceeds could
be expended beyond those specified in statute would also require state legislation. Local votes
would also be required.
Reallocation of Existing Tourist Development ("Bed") Tax revenues
The Workforce Housing Task Force's recommendations to provide funds for affordable housing
included a suggestion that the existing Tourist Development Tax could be reallocated. As
currently written, proceeds from this tax are restricted to be spent on tourist development, such
as convention centers, sports arenas and tourism advertisements. Changes in the allocation of
revenues from this source that are not provided for in law would require state legislative
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changes. Reallocation of funds from the Tourist Development Tax would mean fewer dollars
would be available for tourism advertisements and tourist -related facilities.
Authorization and Adoption of a Real Estate Transfer Tax
A real estate transfer tax is a tax assessed on real property when ownership of the property is
exchanged between parties. It generally applies to all types of real property, including
residential, commercial, and agricultural. At the state level, the real estate transfer tax is
partially used to fund Florida Forever and the programs funded through the Sadowski Affordable
Housing Act. A real estate transfer tax to be used at the local level was one of the Workforce
Housing Task Force's recommendations to provide funds for affordable housing. This taxing
authority probably does not currently exist, and would require state legislation, then a
referendum and ordinance.
Ad Valorem Revenues Increases
Monroe County could increase revenues for all of the land acquisition and management
programs by using ad valorem revenues. Existing revenues could be used to support debt for
these purposes. However, a voter approved referendum would be required to issue general
bonds secured by ad valorem millage. In addition, revenues from the current level of taxation
are already being used to fund county operations.
Another option is to increase the ad valorem tax rate, which is currently well below the
maximum 10 mills for county operation and maintenance allowed by the state constitution. This
increase would just require a majority vote by the BOCC. The increased revenues could be
directly used to fund land acquisition and management programs without the issuance of debt,
so no referendum would be required. However, this tax increase would aggravate the
affordable housing issue by making it more expensive to own or rent a home.
Gas Taxes
Three types of local gas taxes are paid in Monroe County - the two cent constitutional gas tax,
the one cent County Gas Tax, and a local option motor fuel tax of up to twelve cents that
counties may impose. Monroe County levies six cents. In general, state law requires that the
gas tax revenues be spent on transportation -related issues. The local option gas tax generates
approximately $1.5 million/year for Monroe County. Doubling it would probably raise about an
additional $1.5 million/year. If non -transportation linked revenue funds are currently being spent
on eligible transportation costs by the county, an increase in gas taxes could allow an equal
amount of non -transportation linked revenue to be shifted to other expenses, such as affordable
housing, environmental lands acquisition and management, and retirement of development
rights.
Impact Fees and Impact Taxes
A fee is charged for a service rendered or benefit received. In order for impact fees to withstand
challenge as an unauthorized tax, the Florida Supreme Court has ruled that the fee amount
must be reasonable and proportionate to costs incurred as a result of the development, and that
fee proceeds must be specifically earmarked to fund these costs. Fees generally require the
approval by a vote of the Board of County Commissioners.
The Workforce Housing Task Force recommended new or additional impact, user or linkage
fees to provide funds for affordable housing. Some impact fees could probably be implemented
through local ordinances. Impact fees are intended to provide for future needs caused by future
growth. Since the county has been acquiring environmentally sensitive lands for years, it may
be possible to have new impact fees for protection of environmental lands. Not a great deal has
30
Monroe County Land Acquisition and Management Master Plan DRAFT
been done for affordable housing in the past, so it may be difficult to have impact fees for
affordable housing, since much of the affordable housing need is the result of past growth and
the new fees would have to apply to new growth impacts, not old growth impacts.
Impact taxes are more easily formulated and administered that impact fees. It is difficult to
demonstrate the proportionate relationship of a new impact fee to new community growth. As a
result most impact fees only recover a portion of the incremental costs of the new growth.
Impact taxes, however, can recover all governmental costs of the new growth rather than a
series of impact fees for the different types of services and facilities provided and associated
with new growth. The calculation of an impact tax and the accountability of the tax revenues
can be simpler than for an impact fee.
As for other taxes, new impact taxes would generally require state legislation, a local
referendum and one or more votes by the BOCC. Alternative strategies for impact taxes
include:
1) A Per Unit Levy on Physical Characteristics of New Structures, such as per living unit,
per bedroom, per square foot, or per unit of land area developed
2) An Excise Tax on Sales of Construction Materials
3) An Occupational License Tax on Building Contractors based on the value of completed
property
4) A Gross Receipts Tax on Contractors and Developers
5) A Rezoning / Redevelopment Tax, based on the category to which the land is rezoned
and the number of acres involved
Real Estate Transfer Gap Tax
Florida has a real estate transfer tax at the state level on the value of deeds and mortgages. A
variation of this would be a gap tax, which at the time of sale would assess a tax on the
difference between the selling price of a property and its ad valorem assessment. Local real
estate transfer tax authority requires state legislation and a local referendum.
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Monroe County Land Acquisition and Management Master Plan DRAFT
Implementation Strategies for the
Land Acquisition and Management Master Plan
Monroe County has taken significant steps toward fulfilling its commitments in the January 2004
cooperative agreement with the Florida Department of Community Affairs. The MCLA has
spent $7.5 million for affordable housing land and two additional acquisitions totaling more than
$2.5 million are planned for 2006. In March 2006, the BOCC made numerous, substantive
changes to Monroe County's 2010 Comprehensive Plan and approved analogous Land
Development Regulations. These amendments adopted the Tier System, set the priorities and
framework for the land acquisition process and master plan, and directed how acquired lands
were to be managed.
Implementation of the Land Acquisition and Management Master Plan (LAMMP) will take
substantial additional funding. The county is committed to securing additional funds, from both
local and non -local sources. In addition, some non -funding related actions can contribute to
successful performance. However, it is recognized that with the uncertainty concerning the
county's ability to successfully secure sufficient funding from state and federal governments for
their fair share of the financial support for the Land Acquisition Program and the demands
placed on the county's limited financial resources to address wastewater and other critical
issues, the Land Acquisition Program may extend well beyond 20 years. In implementing this
Land Acquisition and Management Master Plan, Monroe County is only committed or financially
obligated to the extent that local, state, and federal funds are available.
Land Acquisition Priorities
The Monroe County Comprehensive Plan clearly lays out the types of lands that should be
acquired, priorities for land acquisition, and criteria for assigning priorities within categories.
Types of Land to Acquire (Monroe County Local Government Comprehensive Plan Policy
102.4.2)
The Comprehensive Plan directs the Land Authority and the Growth Management Division to
identify the types of lands to consider for acquisition. These types include, at a minimum:
1. designated Tier I (Natural Areas) lands;
2. restoration areas between fragmented hammocks to increase the contiguous hammock
size and buffers where appropriate and lands containing naturally occurring and native
habitats;
3. fresh water wetlands, and undisturbed salt marsh, and buttonwood wetlands;
4. patches of upland native vegetation of one acre or greater in area in Tier III, designated
as Special Protection Areas, that provide habitat for small birds and animals and
contribute to the quality of the neighborhoods;
5. lands containing unique geologic features;
6. lands whose conservation would enhance or protect water quality or would protect fish
or wildlife habitat, which cannot be adequately protected through local, state and federal
regulatory programs;
7. lands in Tier III for employee and affordable housing that do not involve the clearing of
any upland native vegetation contained within a patch of one acre or greater;
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Monroe County Land Acquisition and Management Master Plan DRAFT
8. lands which can be used, without adverse impacts on natural resources, for community
and neighborhood parks and/or public beaches water access;
9. lands which offer the opportunity for preservation of significant archaeological or
historical sites; and
10. lands with habitat value on Big Pine Key and No Name Key to meet mitigation
requirements of the Big Pine Key and No Name Key Habitat Conservation Plan
Development of a Priority List of Land Acquisition Sites (Policy 102.4.3)
The Comprehensive Plan directs the Land Authority and Growth Management Division to
develop a priority list of acquisition sites. This list is to be updated annually with public input and
in consultation with representatives of FDEP, FDCA, USFWS, SFWMD, FWC and others as
appropriate (Policy 205.5.2).
Priorities shall be:
1. Priority 1 - Tier I lands and land for affordable housing in Tier III that does not involve
any clearing within an upland tropical hammock or pineland of one acre or greater in
area
2. Priority 2 - land with fragmented hammocks or pinelands of greater than one -acre in
area and fresh water wetlands, undisturbed salt marsh, and buttonwood wetlands [Tier
III -A, Special Protection Areas]
3. Priority 3 - Tier II (Big Pine Key and No Name Key) and Tier III lands
As part of this process, a list of priority native upland habitat acquisition sites in Tier I will be
developed by Monroe County in consultation with representatives of FDEP, FDCA, USFWS,
SFWMD, FWC and others as appropriate. Public input will also be considered (Policy 205.5.2).
The Comprehensive Plan provides further criteria on ranking within these priority areas (Policy
102.4.6). Criteria include:
1. the size and location of the property and surrounding land uses including
management status
2. minimization of the edge to area ratio of parcels by combining lots for acquisition
3. potential for successful reclamation if within a larger, better hammock quality area,
and
4. maintenance costs for isolated parcels
For affordable and employee housing, the following criteria were defined:
1. Parcels in Tier III that are suitable for the development or redevelopment of six or
more residential units will be identified and prioritized for acquisition.
2. Priority for acquisition will be given to projects that are ready to proceed with ROGO
allocation available.
3. Public/private/non profit partnerships and/or agreements will be utilized to develop
the site and maintain affordability of residential units in perpetuity.
The Comprehensive Plan provides additional guidelines for selecting land to acquire for
affordable housing (Policy 601.1.8):
1. The location of endangered species habitat, as specified on the most recent
Protected Animal Species maps. Sites within known, probable or potential
threatened or endangered species habitat shall be avoided.
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Monroe County Land Acquisition and Management Master Plan DRAFT
2. The environmental sensitivity of the vegetative habitat. The habitat sensitivity shall
be determined according to the ranking specified in the Environmental Design
Criteria section of the Land Development Regulations. Unless no feasible alternative
is available, disturbed sites shall be selected.
3. The level of service provided in the vicinity for all public facilities. Areas which are at
or near capacity for one or more public facility should be avoided.
4. Proximity to employment and retail centers. Sites within five miles of employment
and retail centers shall be preferred.
The Comprehensive Plan provided further guidance for land to be acquired for environmental
protection, density reduction and passive recreation (Policy 102.4.6):
1. Public acquisition, ownership and maintenance will be the preferred option for Tier I
lands and for clusters of undisturbed wetland and tropical hardwood hammock, or
pineland patches of one acre or greater in size in Tier 11 (Big Pine and No Name Key)
and Tier 111;
2. Buy/sell back to the adjacent property owner's option will be followed in Tier 11, where
sprawl and density reduction and mitigation requirements of the Habitat Conservation
Plan for Big Pine Key and No Name Key are the prime impetus for land purchase. A
higher priority for acquisition will be given to those parcels in Tier 11 (Big Pine and No
Name Key) with neighboring properties owners or communities who want to partner with
the county to purchase the lots and take responsibility for maintenance and protection of
any areas of native vegetation;
3. Purchased lands that can also provide needed recreational opportunities will be
identified in coordination with the Parks and Recreation Board and a plan for utilization
developed;
4. Non -purchase options will also be explored and specific recommendations included.
The Comprehensive Plan mentions other priorities for land acquisition, particularly regarding
endangered species (Goal 207). These priorities were considered in development of the Tier
System, which is included in the latest revisions to the Comprehensive Plan. If, in the process
of developing a list of priority land acquisition sites, it is found that important habitat for
endangered species and other critical natural resources are not adequately addressed in the
Tier System, these additional factors will be considered in developing the list.
Another facet of the Land Acquisition and Management Master Plan is retirement of
development rights. The Comprehensive Plan (Policy 101.6.5) directs that Monroe County, the
state, or other acquisition agency pursue land acquisition through voluntary purchase of lands
from private property owners denied a building permit through ROGO's Permit Allocation
System, as the preferred option for administrative relief, if the subject permit is for development
located within:
1. a designated Tier I area;
2. a designated Tier III Special Protection Area; or,
3. a designated Tier III area on a non -waterfront lot suitable for affordable housing.
Refusal of the purchase offer by a property owner shall not be grounds for the
granting of a ROGO or NROGO allocation award.
In addition, the Tavernier Livable Communikeys Plan Action Items 2.2.2, 4.2.4, and 10.1.4
identified types of lands to acquire that are important to the character of Tavernier. These
include vacant fragmented hammock patches in Tier 11 not currently protected by conservation
easements, hammock lands within the Historic District, and small local pocketparks in
neighborhoods.
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Monroe County Land Acquisition and Management Master Plan DRAFT
In development of the priority list, the county will also consider for acquisition:
• Parcels outside Tier I of native habitat patches of 2 to 4 acres and parcels in upland
native habitat adjacent to publicly owned parks and conservation areas
• Linear patches of two hundred feet or more of upland native habitat located on US 1 for
preservation and community character of the Florida Keys
• Parcels of upland native habitat patches of one or two acres
ACTION: Within one year, Monroe County will develop a strategy to determine all options
available with respect to the identification and acquisition of lands for affordable housing.
ACTION: The Land Authority and Growth Management Division, with public input and
consultation with state and federal agencies, will annually develop a land acquisition priority list
using the criteria defined in the Comprehensive Plan.
Responsibilities for Land Acquisition (Policy 102.4.4)
In the Comprehensive Plan, the county stated the desire to have a coordinated land acquisition
effort, with the state and federal government accepting primary responsibility for acquisition of
Tier I, conservation and natural lands. Without a specific federal appropriation, it is unlikely that
the federal government will make additional substantial conservation land purchases in the
Keys.
With the approval in June 2004 and February 2005 of the boundary amendments to Florida
Forever projects in the Keys, almost all Tier I lands are now on the Florida Forever list. The
state is making exceptional efforts to acquire all Florida Forever project lands in the Keys, and is
expected to make final offers to all landowners within the project boundaries before June 2007.
Many landowners will not accept the state's offer, and much Tier I land within the Florida
Forever projects will remain in private hands. After June 2007, the state may limit its acquisition
efforts to responding to landowners that contact the state, and the state may be willing to
reimburse the county for lands the county purchases within Florida Forever boundaries, at least
up to the pledged $93 million.
In the Comprehensive Plan, the county indicated responsibility for acquisition of Tier II lands
and Tier III wetlands and fragmented hammock or pineland areas of one -acre or greater (Tier
III -A, Special Protection Areas) (Policy 102.4.4). The plan stipulates that land acquisition for
other priorities depends upon funding availability, need and future use. However, as the state
reduces it attempts to purchase Florida Forever/Tier I land in the Keys, Monroe County will likely
need to perform more of the Tier I acquisitions, even if the state reimburses the acquisition
costs. Also, it is unlikely that other entities will make significant purchases of land for affordable
housing, so this will be the county's responsibility as well.
ACTION: Monroe County will acquire Tier II lands and Tier III -A lands for conservation
purposes and Tier III infill lands for affordable housing, and will encourage acquisition of Tier I
lands by federal and state programs. The county will ensure that the overall land acquisition
efforts follow the priorities established in the Comprehensive Plan.
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Monroe County Land Acquisition and Management Master Plan DRAFT
Intergovernmental Organization to Implement the Land Acquisition Program (Policy
102.4.5)
The Comprehensive Plan calls for development of an intergovernmental organization and
management structure to implement the acquisition program, and envisioned the participation of
representatives from the Monroe County Growth Management Division, the Land Authority,
municipalities and state and federal agencies. A meeting between DEP Division of State Lands,
DEP Division of Recreation and Parks, FWC, DCA, USFWS, MCLA, Monroe County,
Islamorada, Marathon, The Conservation Fund and The Nature Conservancy was held in
February 2006 to address land acquisition progress by Florida Forever and management
responsibilities for newly acquired lands. As mentioned above, the state's land acquisition
efforts will be winding down shortly.
The Growth Management Division is responsible for the development and implementation of the
Land Acquisition Master Plan (Policy 102.4.1). It is recommended that the Growth Management
Division coordinate semi-annual meetings/teleconferences to facilitate implementation of the
Land Acquisition Program. Recommended participants include the MCLA, Keys municipalities,
the Monroe County Housing Authority, Florida Housing Coalition, the Department of Community
Affairs, DEP Division of State Lands, DEP Division of Recreation and Parks, FWC, USFWS,
and non -governmental land acquisition organizations such as The Conservation Fund, The
Nature Conservancy, and the Trust for Public Land. Topics at each meeting should include
progress on land acquisition, priorities of the various land acquisition programs involved in the
Keys, land acquisition budgets, planned acquisition activities and potential funding sources. It
may be advisable to link these meetings with the multi -agency land management meetings,
discussed below.
ACTION: The Growth Management Division will coordinate semi-annual multi -agency
meetings/teleconferences to facilitate implementation of the Land Acquisition Program.
Conservation Land Management by the County and MCLA
The Comprehensive Plan specifies that lands acquired through the Monroe County Land
Acquisition Program shall be managed to restore, preserve, and protect the conservation,
recreation, density reduction and affordability purposes for which the lands were acquired
(Policy 102.4.7). The Plan further directs that Monroe County complete and implement a
cooperative land management program for publicly owned lands acquired through
implementation of the Monroe County Land Acquisition Master Plan, the Livable CommuniKeys
Program, and the Florida Keys Carrying Capacity Study (Objective 102.9).
The Monroe/MCLA -owned conservation lands differ from the typical conservation land
situation. Generally, conservation lands have specific units of a fairly large size with a
management plan, such as for a state park. Monroe County/MCLA conservation lands are often
scattered and sometimes not easily envisioned as one management unit. Many county -owned
parcels are within or adjacent to conservation lands owned by other entities. Cooperative
management of county lands near conservation lands managed by other entities is important.
At present, Monroe County/MCLA do not have a formal management plan for their conservation
lands, and are guided by policies in the Comprehensive Plan and Land Development
Regulations.
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Monroe County Land Acquisition and Management Master Plan DRAFT
The Comprehensive Plan commits the county to initiating a planning process to develop policies
to direct the over-all management program for publicly owned native lands, in cooperation with
appropriate state and/or federal agencies. It is anticipated that these policies and specific
management strategies may be modified as the program progresses, acquisitions continue and
new information becomes available through biological research or monitoring of the
management units (Policy 102.9.2). Until management plans and additional policies are
developed, Monroe County will use the Miami -Dade County Habitat Management Plan,
developed by the Miami -Dade County Natural Areas Management Working Group, for guidance
in managing Monroe County's conservation lands (Miami -Dade County Department of
Environmental Resources Management [DERM] Technical Report No. 2004-1;
www.miamidade.gov/derm/land/library/04-09-30-Nat_ Areas_Mgt_Plan.pdf). Miami -Dade has
years of experience managing scattered parcels of pine rocklands and tropical hammocks.
Multi -organization Structure for Conservation Land Management
The Comprehensive Plan explicitly directs that the Monroe County land management program
be a cooperative effort involving state and federal agencies (Objective 102.9 and related
policies). Although not mentioned in the Comprehensive Plan, it would benefit Monroe County
to include other Keys municipalities, Miami -Dade County and conservation groups with land
management experience, such as The Nature Conservancy. These agencies and organizations
have decades of experience managing resources in or near the Keys, and their inclusion in
formulating land management policies and plans has obvious benefits. In addition to the
expertise of these groups, numerous county -owned conservation lands are adjacent to lands
owned and managed by these groups.
Many agencies and organizations are already cooperating on land management -related issues
in the Keys, such as invasive species management and fire management. The Florida Keys
Invasive Exotics Task Force and Keys Wildland Fire Hazard Reduction Initiative already meet to
discuss and cooperate on issues. Monroe County participates in these groups and should
continue to do so. Depending on the desires of participants, Monroe County should work within
the structure of these existing groups or initiate a similar group to assist the county to develop
organization and management plans to initiate a program for protection, restoration and
management of acquired lands. Cooperation involving on -ground management activities should
be encouraged when feasible.
ACTION: Monroe County will continue to participate in the Florida Keys Invasive Exotics Task
Force and Keys Wildland Fire Hazard Reduction Initiative, and will use these groups or will form
a similar group to advise and assist Monroe County on conservation land management policies
and strategies and to help develop management plans for protection, restoration and
management of county -owned conservation lands.
Management Plans for County/MCLA-owned lands
Monroe County will develop organization and management plans to initiate a program for
protection, restoration and management of acquired lands, in cooperation with other responsible
state and federal agencies. Management objectives for specific management units will be
developed in concert with state, federal and municipal land management programs responsible
for adjoining lands (Policy 102.9.3). Management plans will incorporate the state -required
components for management plans for state-owned lands so that management plans can be
37
Monroe County Land Acquisition and Management Master Plan DRAFT
based on resources, rather ownership, unless the purposes for which the lands were acquired
differ significantly. If feasible, develop a single management plan for all conservation lands
managed by the county/MCLA.
The management plan(s) will be reviewed every three years, in cooperation with the appropriate
state and/or federal agencies. Revisions to each management plan will be made as necessary
to reflect recent land acquisitions and changing management priorities (Policy 102.9.4).
ACTION: Within 18 months of the approval of the Land Acquisition and Management Master
Plan, Monroe County and the Monroe County Land Authority will develop organization and
management plans for county/MCLA-owned lands in cooperation with state and federal
agencies, Miami -Dade County, and conservation groups and review the plans every three
years. If feasible, develop a single management plan for all conservation lands managed by the
county/MCLA.
Management Plan for State-owned Land Managed by the County
Monroe County committed to managing all lands it proposed for addition to the Florida Forever
projects in the Keys, except for those lands other agencies were willing to manage. The
management of these lands is subject to state statutes and rules. By state law, Monroe
County/MCLA will need to prepare a land management plan within a year of signing a lease to
manage state-owned conservation lands. This plan must go through a state approval process,
and is to be reviewed every five years and updated every 10 years. The plan must also be
updated if facilities are proposed that were not included in the approved management plan or if
the land management is intended to vary from that in the approved plan. Monroe County
intends to write one management plan for all state lands that it will manage, similar to FWC's
approach to the management plan for the Florida Keys Wildlife and Environmental Area, a
group of properties bought by state land acquisition programs. If feasible, the county will
develop a single management plan for all conservation lands managed by the county/MCLA,
including county -owned lands and state-owned lands.
ACTION: Within a year of signing a lease with the state, Monroe County will develop a land
management plan for state-owned lands managed by the county. If feasible, the land
management plan will include both county -owned and state-owned lands managed by the
county.
Priority Restoration Lists
The Comprehensive Plan also directs the development of lists of priority restoration sites,
updated biennially, for wetlands, native upland vegetation, seagrass bed, exotic vegetation
removal, and beach/berm areas (Policies 210.1.1-5). Restoration projects will be completed as
funding becomes available, and local, state and federal funding sources should be accessed
(Policy 210.1.7). The initial lists will be developed in conjunction with the drafting of the land
management plans. The Comprehensive Plan lists some agencies that should be involved, and
additional participants are suggested (Table 5). The Comprehensive Plan sometimes specified
whether the sites to be prioritized should be owned by the county, private, and/or public. For
some of the restoration lists, additional ownership categories are suggested in Table 5, below.
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Monroe County Land Acquisition and Management Master Plan DRAFT
The lists should be developed in a manner similar to that used by the Florida Keys Invasive
Exotics Task Force and should initially consider all public and private conservation lands in the
Keys. It may be prudent to consider some private, non -conservation lands next to conservation
lands where control of exotics or other restoration on the private lands is essential to protecting
the natural resources of the conservation lands. Depending on the desires of participating
agencies, it may make sense to develop at least some of these lists within the structure of the
Florida Keys Invasive Exotics Task Force. Otherwise, a similar multi -organization group should
be structured, at least informally.
Restoration lists should be prioritized based on ecological factors, regardless of ownership. In
cases where funds will be requested from a grant source, funds should be applied to the highest
priority restoration areas. In general, if restoration funds are not available from other sources,
county funds should be utilized for restoration of county -owned or managed lands. The Monroe
County Land Restoration and Management Fund is one source of funds for restoration.
Table 5. Priority restoration lists to be developed
Resource
Land ownership
Participants (additional recommended
Frequency
(Comprehensive
(add'I
participants)
of update
Plan policy)
recommended
lands)
Wetlands (210.1.1)
County, ACOE, EPA, FWS, DEP, FWC
biennial
(Audubon, TNC, Marathon, Islamorada)
Native upland
Public and private
County, FDACS DPI, FNAI, Audubon of FL
biennial
vegetation
Science (TNC, DEP, USFWS, FWC,
(210.1.2)
Islamorada, Marathon)
Seagrass bed
County, NOAA, EPA, DEP (FWC)
biennial
(210.1.3)
Exotic vegetation
County (public and
County (Audubon, TNC, DEP, FWC, USFWS,
biennial
removal (210.1.4)
private)
Marathon, Islamorada)
Beach/berm areas
County
County (Audubon, TNC, DEP, FWC,
biennial
(210.1.5)
USFWS, Marathon, Islamorada)
Text in parentheses are recommendations to include land ownerships or organizations beyond those specified in the
Comprehensive Plan
ACTION: Within 18 months of approval of the LAMMP, develop priority restoration lists in
cooperation with other organizations in the Keys.
Financial Plan
An essential component to the successful implementation of the Land Acquisition and
Management Master Plan is a financial plan. Estimates of the cost, available funding, and
funding shortfall, however coarse, provide an idea of the magnitude of additional funding
necessary. A review of potential funding sources then permits commitments to be made and
efforts initiated to obtain the required funds. While the Comprehensive Plan is explicit that
Monroe County is only committed or financially obligated to the extent that local, state, and
federal funds are available, efforts to address these critical funding needs are essential to the
well-being of the Keys, both economically and environmentally.
As stated previously, it recognized that, with the uncertainty concerning the county's ability to
successfully secure sufficient funding from state and federal governments for their fair share of
the financial support for the Land Acquisition Program and the demands placed on the county's
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Monroe County Land Acquisition and Management Master Plan DRAFT
limited financial resources to address wastewater and other critical issues, the Land Acquisition
Program may extend well beyond 20 years.
Funding Status
Table 6 provides a very rough summary of the significant funding and non -funding sources
available on a somewhat regular basis for conservation, development rights, and affordable
housing and conservation land management in unincorporated Monroe County. The table
shows that, during the next 20 years, approximately $146 million are anticipated to be available
for all those activities. Additional funds are also expected from a variety of sources, but not on a
regular basis. MCLA funds listed in the table are also for cities within the Florida Keys Area of
Critical State Concern.
Table 6. Significant funding and non -funding sources available on a regular basis for
conservation, development rights, and affordable housing land acquisition in unincorporated
Monroe County
Program or
Uses
Annually
Projected
Comments
source
available
funds
available for
next 20 years
Monroe County
Environmental lands,
$1.4
$28 million
These funds are also for
Land Authority
affordable housing,
million
use in cities within the
retirement of
Florida Keys Area of
development rights,
Critical State Concern
other uses
Monroe County
Conservation land
Varies
Unknown
New fund with little history
Land Restoration
restoration and
and Management
management
Fund
Florida
Environmental land
$93 million
$93 million committed,
Forever/Board of
acquisition
some spent, more may be
Trustees
available
Key Deer Habitat
Environmental land
$3.5-7 million
For Big Pine Key, No
Conservation Plan
acquisition
Name Key
Acquisition Fund
FL Housing and
Affordable housing —
$20 million
$20 million pledged for
Finance Corp
land and structures
Keys through about 2011;
Community Land
add'I funds anticipated
Trusts RFP
Keys
Restoration of
Varies
Unknown
Environmental
environmental lands
Restoration Fund
Keys
Acquisition of
Varies
Unknown
Environmental
environmental lands
Restoration Fund
DEP grant to
Invasive species
Maximum
Maximum of
Based on current 10-year
county re invasives
control on
of
$2 million
program; renewal possible
environmental lands
$200,000
ROGO lot
At least 735 lots donated
donations
through 2005
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Monroe County Land Acquisition and Management Master Plan DRAFT
According to the figures compiled in "Efforts and Current Status", approximately $355 million will
be needed for environmental land acquisition, $9.1 million for conservation land management,
$260 million for affordable housing land acquisition, and $117 million for retirement of
development rights, for a total of $741 million. This plan's calculations anticipate that state or
federal funding will be available for Tier I lands within Florida Forever boundaries, beyond the
amount already committed. These funds would account for $298 million of the $355 million
environmental land acquisition total, leaving $443 million for all categories. Only about $53
million appears to be available during the next 20 years. This leaves a shortfall of
approximately $390 million for the mentioned activities. This figure does not include the cost to
buy or build structures on affordable housing land. The calculations also include a 25% figure,
since not all landowners will be willing to sell their land, which will also result in lower
conservation land management costs.
Funding Strategy for State and Federal Funds
A variety of approaches will be necessary to secure the funds essential to implementing the
LAMMP. In addition to the suggested actions summarized below, potential land acquisition and
management funding sources listed in the "Tools" section should be reviewed and funds should
be pursued from the more likely prospects.
Conservation Land Acquisition Funds
State Funds
Florida Forever
Recently, the Florida Forever -Board of Trustees program has been the largest source of funds
for purchase of environmental lands in the Keys. Although the state has made significant
progress in acquiring Tier I lands and expended substantial funds, many vacant privately -owned
parcels remain. Monroe County should encourage the state to continue acquisition efforts, and
commit to reimbursing the county for any lands it buys within Florida Forever boundaries. The
Florida Forever program will expire by 2010, and Monroe County should vigorously support
efforts to continue the Florida Forever program and expand funding.
Florida Communities Trust
In general, the criteria for scoring Florida Communities Trust (FCT) applications do not favor the
types of environmentally sensitive lands being pursued in Monroe County, despite recent criteria
revisions intended to be favorable for the Keys. With up to $6.6 million available to the county
each year, Monroe County should consult with FCT staff and pre -score potential projects to
determine if it is worthwhile to submit projects. If the program rules are opened for revisions,
Monroe County should pursue additional favorable changes. FCT is funded through Florida
Forever, so this program is dependent on the continuation of Florida Forever.
Federal funds
National Wildlife Refuge lands
Efforts should be made to secure federal funds to acquire additional lands within the authorized
boundaries of the National Wildlife Refuges in the Florida Keys. Lands of importance to
recovery of federally listed endangered species should be emphasized. The active support of
conservation groups, such as The Nature Conservancy and The Conservation Fund, should be
encouraged.
Muller and Associates, Inc. DRAFT 28 July 2006 41
Monroe County Land Acquisition and Management Master Plan DRAFT
NOAA funds
The potential to acquire lands through the National Marine Sanctuary Program should be
pursued.
Hazard mitigation related funds
Investigate the potential to use hazard mitigation funds to acquire environmentally sensitive
lands as a way to keep the lands from being developed.
Conservation Lands Management Funds
State
FDEP Upland Plant Management Program
Continue involvement with the Florida Keys Invasive Exotics Task Force to propose
comprehensive invasive exotics control grant requests to the FDEP Upland Plant Management
Program.
Florida Coastal Management Program
Investigate the potential to receive funds for coastal management activities.
Federal
Investigate the potential for federal management and restoration funds, especially in partnership
with private organizations.
Affordable Housing Land Acquisition Funds
State
Florida Housing Finance Corporation
Continue to work with FHFC to generate Requests for Proposals that match housing needs in
the Keys. Work to secure additional funds past the pledged $20 million.
Sadowski Act
Work with affordable housing proponents and elected officials of other areas with pressing
housing needs to have the cap removed regarding tax proceeds that can go into the Sadowski
Act programs and to get the full amount appropriated each year. Ensure that workforce
housing, particularly for public service employees, is a strong component of housing programs.
Retirement of Development Rights
In general, no non -local funds are available for retirement of development rights. The Florida
Forever program should be encouraged to reimburse the county for purchase of development
rights on vacant parcels within Florida Forever project boundaries. The state should also be
encouraged to participate in any lawsuits regarding retirement of development rights and to
participate in funding any findings against the county.
Funding Strategy for Local Funds
Additional local funds are essential to the successful implementation of the LAMMP. When
possible, the categories in which various types of local funds can be expended should be made
flexible to provide latitude to respond to changing conditions. A variety of potential funding
Muller and Associates, Inc. DRAFT 28 July 2006 42
Monroe County Land Acquisition and Management Master Plan DRAFT
sources are listed in the "Tools" section. Monroe County will further investigate these, as well
as other, potential sources and will take the steps necessary to secure funds.
As stated earlier, about $443 million is anticipated to be need for environmental land acquisition
and management, affordable housing land acquisition, and retirement of development rights,
assuming that the state or federal government will acquire lands within the Florida Forever
project boundaries. Approximately $53 million is anticipated to be available during the next 20
years, leaving a shortfall of $390 million. For this first iteration of the LAMMP, the county will
plan to fund an additional $98 million during the next 20 years, which equals 25% of the
estimated $390 million needed.
ACTION: During the next two years, Monroe County will take actions necessary to fund an
additional $98 million during the next 20 years for environmental land acquisition and
management, affordable housing land purchases, and retirement of development rights. This
funding will be coordinated with the annual update of the Capital Improvements Element and the
Five -Year Capital Improvement Schedule.
Muller and Associates, Inc. DRAFT 28 July 2006 43
Monroe County Land Acquisition and Management Master Plan DRAFT
Additional Recommendations
Some additional recommendations to assist in implementation of the LAMMP are listed below.
General
• Update the LAMMP periodically to chart progress, report on accomplishments and
reflect changing conditions.
• Encourage participation of volunteers and investigate the feasibility of hiring volunteer
coordinators for conservation land management and affordable housing.
Affordable Housing
• Strongly encourage the formation of an affordable housing joint task force, with the
participation of the county and all municipalities in the county.
• Work with the joint task force, Monroe County Housing Authority, its consultants, local
community land trusts and the Florida Housing Coalition to investigate the potential for
providing funds from multiple sources for each affordable housing project in the Keys.
Hold workshops to provide this information to building contractors and potential investors
to try to increase the number of contractors/investors participating in affordable housing
initiatives.
Encourage public/private partnerships to meet affordable housing needs.
Investigate the desirability of establishing additional community land trusts.
Consider use of local funds to acquire land for affordable housing and banking these
lands until local affordable housing entities receive grants eligible to purchase land. Sell
the lands to the affordable housing entities and roll the funds back into affordable
housing land acquisition.
Muller and Associates, Inc. DRAFT 28 July 2006 44
Notes from the
Monroe County Land Acquisition and Management Master Plan
DRAFT
Prepared by Muller and Associates, Inc.
August 16, 2006
The Monroe County Year 2010 Comprehensive Plan and the state Land Planning
Regulations for the Florida Keys Area of Critical State Concern - Monroe County
(Chapter 28-20, Florida Administrative Code) both call for a Land Acquisition and
Management Master Plan. The January 2004 cooperative agreement between Monroe
County and the Florida Department of Community Affairs (DCA) further emphasized the
need for this plan to address strategies, funding, and non -funding sources for acquisition
and management of conservation lands, retirement of development rights, and
acquisition of affordable housing sites.
Implementation Strategies for the
Land Acquisition and Management Master Plan
The MCLA has spent $7.5 million for affordable housing land and two additional
acquisitions totaling more than $2.5 million are planned for 2006.
In March 2006, the BOCC made numerous, substantive changes to Monroe County's
2010 Comprehensive Plan and approved analogous Land Development Regulations.
These amendments adopted the Tier System, set the priorities and framework for the
land acquisition process and master plan, and directed how acquired lands were to be
managed.
It is recognized that with the uncertainty concerning the county's ability to successfully
secure sufficient funding from state and federal governments for their fair share of the
financial support for the Land Acquisition Program and the demands placed on the
county's limited financial resources to address wastewater and other critical issues, the
Land Acquisition Program may extend well beyond 20 years. In implementing this Land
Acquisition and Management Master Plan, Monroe County is only committed or
financially obligated to the extent that local, state, and federal funds are available.
Land Acquisition Priorities
Types of Land to Acquire (Monroe County Local Government Comprehensive Plan
Policy 102.4.2)
Development of a Priority List of Land Acquisition Sites (Policy 102.4.3)
ACTION: Within one year, Monroe County will develop a strategy to determine all
options available with respect to the identification and acquisition of lands for affordable
housing.
Muller and Associates, Inc. DRAFT 16 August 2006 1 ��'
ACTION: The Land Authority and Growth Management Division, with public input and
consultation with state and federal agencies, will annually develop a land acquisition
priority list using the criteria defined in the Comprehensive Plan.
Responsibilities for Land Acquisition (Policy 102.4.4)
ACTION: Monroe County will acquire Tier 11 lands and Tier III -A lands for conservation
purposes and Tier III infill lands for affordable housing, and will encourage acquisition of
Tier I lands by federal and state programs. The county will ensure that the overall land
acquisition efforts follow the priorities established in the Comprehensive Plan,
Intergovernmental Organization to Implement the Land Acquisition Program
(Policy 102.4.5)
ACTION: The Growth Management Division will coordinate semi-annual multi -agency
meetings/teleconferences to facilitate implementation of the Land Acquisition Program.
Conservation Land Management by the County and MCLA
Multi -organization Structure for Conservation Land Management (Objective 102.9)
ACTION: Monroe County will continue to participate in the Florida Keys Invasive
Exotics Task Force and Keys Wildland Fire Hazard Reduction Initiative, and will use
these groups or will form a similar group to advise and assist Monroe County on
conservation land management policies and strategies and to help develop management
plans for protection, restoration and management of county -owned conservation lands.
Management Plans for County/MCLA-owned lands (Policy 102.9.3)
ACTION: Within 18 months of the approval of the Land Acquisition and Management
Master Plan, Monroe County and the Monroe County Land Authority will develop
organization and management plans for county/MCLA-owned lands in cooperation with
state and federal agencies, Miami -Dade County, and conservation groups and review
the plans every three years. If feasible, develop a single management plan for all
conservation lands managed by the county/MCLA.
Management Plan for State-owned Land Managed by the County
ACTION: Within a year of signing a lease with the state, Monroe County will develop a
land management plan for state-owned lands managed by the county. If feasible, the
land management plan will include both county -owned and state-owned lands managed
by the county.
Muller and Associates, Inc. DRAFT 16 August 2006
Priority Restoration Lists (Policies 210.1.1-5)
ACTION: Within 18 months of approval of the LAMMP, develop priority restoration lists
in cooperation with other organizations in the Keys. (for wetlands, native upland
vegetation, seagrass bed, exotic vegetation removal, and beach/berm areas)
Financial Plan
Funding Status
About $443 million is anticipated to be needed for environmental land acquisition and
management, affordable housing land acquisition, and retirement of development rights,
assuming that the state or federal government will acquire lands within the Florida
Forever project boundaries.
Needs:
• $355 million for environmental land acquisition
• $9.1 million for conservation land management
• $260 million for affordable housing land acquisition
• $117 million for retirement of development rights
Assuming state or federal government will provide $298 million of the $355 million
environmental land acquisition total for Tier.I lands within Florida Forever boundaries
means $57 million is needed for land acquisition. Adjusted need for land acquisition and
management of $443 million.
Approximately $53 million is anticipated to be available during the next 20 years.
Approximate shortfall of $390 million.
For this first iteration of the LAMMP, the county will plan to fund an additional $98 million
during the next 20 years, which equals 25% of the estimated $390 million needed.
Funding Strategy for State and Federal Funds
Funding Strategy for Local Funds
ACTION: During the next two years, Monroe County will take actions necessary to fund
an additional $98 million during the next 20 years for environmental land acquisition and
management, affordable housing land purchases, and retirement of development rights.
This funding will be coordinated with the annual update of the Capital Improvements
Element and the Five -Year Capital Improvement Schedule.
Additional Recommendation
Strongly encourage the formation of an affordable housing joint task force, with the
participation of the county and all municipalities in the county.
Muller and Associates, Inc. DRAFT 16 August 2006 3
Table 4. Rough estimates of funds that may be needed for conservation and affordable land
acquisition, conservation land management, and retirement of develo rent ri hts
Category
Anticipated
Purchasing
Program/ Funding
Estimated
cosf/unit
Estimated
25% of cost
Costs
millions
for this
category
millions
Source
Environmental lands
Acres
Parcels
Tier I FL Forever Areas
to be acquired
FL Forever-BOT/FL
Forever funds
9,453
8,527
$35,000
$298
Tier I FL Forever Opt-
FL Forever- BOT/FL
Forever funds/local
475
496
$35,000
$17.3
Out Areas
funds
Tier I FL Forever Left-
Out Areas
MCLA/Local funds
213
231
$35,000
$8.1
Tier II Vacant Big
Pine/No Name Keys
MCLA/Local funds
97
504
$35,000
$17.6
Tier III -A SPA (Vacant
Parcels)
MCLA/Local funds
120
393
$35,000
$13.8
Subtotal environmental
lands
10 358
10 151
354.8
88.7
Affordable housing
land
Units
Estimated
land cost
MCLA/fed, state, local
8 private
5000
$52,000
260
65
Retirement of
development rights
Parcels
Estimated
land cost
MCLA/local &state
1000
117 000
117
29.3
Estimated total land
�2
183
acquisition costs
Conservation land
Acres
Estimated
Estimated
management
annual
annual
cost/unit
cost
Local with some
grants
320 acres
pinelands,
$300/aWyr
pinelands,
0.35
1600
$100/ac/yr
hammock,
hammock,
4480
$20/ac/yr
mangrove
mangrove
Estimated
20-year
cost'
9.1
3.9
- ar.u„tea geneiaieu using me rvionroe uiS ana mrormabon rrom DEP
- Environmental land management costs only pertain to land owned by MCLA or Monroe County; does not include federal,
state and private organization costs to manage their lands.
- Estimated annual environmental land management does not include initial land management costs
- Estimated 20-year land management cost is calculated as though all lands were acquired in year 1 and includes initial
mgmt costs; the 25%figure is based on 2000 already owned acres plus 25% of additional lands that may be acquired
- Estimates are in 2005 dollars
- Pinelands, hammock, 8 mangrove categories are aggregated land cover type groupings that include some other land
covertypes
- Conservation land management numbers are derived from Table 3
Muller and Associates, Inc. DRAFT 16 August 2006
Table 6. Significant funding and non -funding sources available on a regular basis for
conservation, development rights, and affordable housing land acquisition in unincorporated
Monroe Count
Program or
Uses
Annually7
Projected
Comments
source
available
funds
available for
next 20 years
Monroe County
Environmental lands,
$1.4
$28 million
These funds are also for
Land Authority
affordable housing,
million
use in cities within the
retirement of
Florida Keys Area of
development rights,
Critical State Concern
other uses
Monroe County
Conservation land
Varies
Unknown
New fund with little history
Land Restoration
restoration and
and Management
management
Fund
Florida
Environmental land
$93 million
$93 million committed,
Forever/Board of
acquisition
some spent, more may be
Trustees
available
Key Deer Habitat
Environmental land
$3.5-7 million
For Big Pine Key, No
Conservation Plan
acquisition
Name Key
Acquisition Fund
FL Housing and
Affordable housing —
$20 million
$20 million pledged for
Finance Corp
land and structures
Keys through about 2011;
Community Land
add'I funds anticipated
Trusts RFP
Keys
Restoration of
Varies
Unknown
Environmental
environmental lands
Restoration Fund
Keys
Acquisition of
Varies
Unknown
Environmental
environmental lands
Restoration Fund
DEP grant to
Invasive species
Maximum
Maximum of
Based on current 10-year
county re invasives
control on
of
$2 million
program, renewal possible
environmental lands
$200,000
ROGO lot
At least 735 lots donated
donations
throu h 2005
Table 3. Rough estimate of continuing management costs for environmental land
potentially to be managed b Monroe Count
Natural
Estimated no.
Estimated
Estimated
Estimated
Estimated
community
acres to be
initial mgmt
continuing
mgmt cosUyr if
cosUyr if 25%
type
managed if
costs
mgmt
all acres
of remaining
all acquired
cost/acre/yr
acquired
acres
ac uired"
Mangroves
4480
896,600
20
89,600
Pinelands
320
384,000
300
96,000
Hammock
1600
960,000
100
160,000
Total
6400
2,240,000
1
345,600
167,000
Pinelands, hammock, and mangrove categories are aggregated land cover type groupings that include some other land
covertypes.
Assumes assistance from non -governmental organizations and some grant support not represented in these estimates.
Assumes low level of public visitation.
`Monroe County/MCLA presently own and manages about 2000 acres; the 25% figure is based on those 2000 acres plus
25% of additional lands that may be acquired
Muller and Associates, Inc. DRAFT 16 August 2006
Last sentence of executive summary, revise:
For this first iteration of the LAMMP, the County will plan to fund an additional $98 million
during the next 20 years, which equals 25% of the estimated $390 million shortfall.
as follows:
J For this first iteration of the LAMMP, the County's coal will plan be to fund the taroet
I� amount of an additional $98 million during the next 20 years, which equals 25% of the
estimated $390 million shortfall.
Action Item on page 43, revise:
ACTION: During the next two years, Monroe County will take actions necessary to fund
an additional $98 million during the next 20 years for environmental land acquisition and
management, affordable housing land purchases, and retirement of development rights.
This funding will be coordinated with the annual update of the Capital Improvements
Element and the Five -Year Capital Improvement Schedule.
as follows:
ACTION: During the next two years, Monroe County will
pursue the goal of funding the tar -get amount of an additional $98 million during the next
20 years for environmental land acquisition and management, affordable housing land
purchases, and retirement of development rights. This funding will be coordinated with
the annual update of the Capital Improvements Element and the Five -Year Capital
Improvement Schedule.
OA
RESOLUTION NO.
A RESOLUTION OF THE BOARD OF COUNTY
COMMISSIONERS OF MONROE COUNTY, FLORIDA,
APPROVING THE TRANSMITTAL OF THE MONROE COUNTY
LAND ACQUISITION AND MANAGEMENT MASTER PLAN TO
THE FLORIDA DEPARTMENT OF COMMUNITY AFFAIRS FOR
REVIEW.
WHEREAS, Rule 28-20.110, Florida Administrative Code, adopted by the Administration
Commission, amends Policy 101.2.13 of the Monroe County Year 2010 Comprehensive Plan to
establish a Work Program; and
WHEREAS, Year Eight of said Work Program requires the development of a Land
Acquisition and Management Master Plan; and
WHEREAS, Monroe County has prepared a draft plan pursuant to said requirement
identifying approximately $400 million of unfunded land acquisition needs; and
WHEREAS, Monroe County has already made substantial financial commitments toward
implementation of said Work Program, including $10 million toward the purchase of affordable
housing sites and $40 million toward the provision of wastewater facilities; and
WHEREAS, compared to other Florida counties, Monroe is a relatively small county
(population approximately 80,000) with limited financial resources and a large percentage of its
land (approximately 95% of the entire county and approximately 60% of the Keys archipelago)
already in public ownership; and
WHEREAS, Monroe County's citizens are experiencing significant financial burdens
associated with dramatic increases in housing and insurance costs; and
WHEREAS, the Board of County Commissioners recognizes the requirements of its
comprehensive plan, as amended by the Administration Commission, but also recognizes the
unfunded needs identified in the Land Acquisition and Management Master Plan may very well
exceed Monroe County's financial resources; now, therefore
BE IT RESOLVED BY THE BOARD OF COUNTY COMMISSIONERS OF MONROE COUNTY,
FLORIDA, that:
I. The Monroe County Land Acquisition and Management Master Plan in Exhibit A is
hereby approved for transmittal to the Florida Department of Community Affairs for
review.
2. In implementing the Monroe County Land Acquisition and Management Master Plan,
Monroe County is only committed or financially obligated to the extent that local,
state, and federal funds are available.
LAMMP Res ,
PASSED AND ADOPTED by the Board of County Commissioners of Monroe County,
Florida, at a meeting of said Board held on the day of
2006.
Mayor McCoy
Mayor Pro Tem Spehar
Commissioner DiGennaro
Commissioner Neugent
Commissioner Patton
(SEAL)
Attest: DANNY L. KOLHAGE, Clerk
By:
Deputy Clerk
LAMMP Res
BOARD OF COUNTY COMMISSIONERS
OF MONROE COUNTY, FLORIDA
By:
Mayor/Chairman Charles "Sonny" McCoy