Item L6 Chapter 4 Major Issue Analysis Monroe County Comprehensive Plan Update
Evaluation and Appraisal Report
CHAPTER 4: MAJOR ISSUES ANALYSIS
The County identified nine (9) Major Issues:
• County-wide Visioning and Planning
• Economic Sustainability
• Land Use/Mobility
• Natural Resource Protection
• Climate Change/Hazard Mitigation
• Public Facilities Funding
• Affordable Housing
• Public Involvement/Information
• Intergovernmental Coordination
Each Major Issue will require strategic actions such as: the implementation of Plan
amendments; changes to land development code or other County ordinances, and
new formal agreements or mechanisms ,or other actions. Each of the Major Issues
have been analyzed in this section. The analysis is divided into an Issue Statement,
Background, Issue Analysis, Policy Framework (which lists all of the relevant
current Monroe County 2010 Comprehensive Plan policies for that particular issue
statement), and Strategies (strategic actions).
The Remainder of This Page Left Intentionally Blank
Chapter 4:Major Issues Analysis 4-1 Evaluation and Appraisal Report
October 2011 Keith and Schnars,P.A.
Monroe County Comprehensive Plan Update
Evaluation and Appraisal Report
I. County-wide Visioning and Planning (2 Issue Statements)
Issue Statement #1: Capitalize upon and protect the uniqueness (sense of place)
of the various communities within the planning areas; implement the
recommendations within the existing visioning plans.
A. Background: The County, seeking a comprehensive planning approach to
address the individual needs of Keys communities, developed the Livable
CommuniKeys Program in 1997, and began the preparation of individualized
"Livable CommuniKeys Plans" (LCP). The plans acknowledge the distinctive nature
of the planning areas and the needs and desires of each community.
A LCP has been adopted for each of the following areas:
• Key Largo;
• Stock Island and Key Haven;
• Big Pine Key and No Name Key; and
• Tavernier.
The Lower Keys LCP is currently under development:
B. Analysis: The first LCP that was completed was for Big Pine Key and No
Name Key in 2004. This area is the prime habitat for the endangered Florida Key
deer. The plan recognized both the needs of the species and the local community's
desire, "...to retain a rural character". Much of the land is under federal government
ownership and large tracts of undeveloped land provide habitat to the Key deer and
other protected species.
In late 2005, the Tavernier LCP was completed. This LCP is focused upon preserving
the community's historical heritage; protecting green space; improving the visual
character of the U.S. 1 corridor; and providing public access to water and
recreational facilities.
The Key Largo LCP was completed in May 2005 and reflects the community's
challenges as both a tourist destination, "Dive Capital of the World", and a "pit-stop"
for travelers heading to other communities further south, including Key West.
The Stock Island LCP was completed in July 2006 and addresses the needs of this
small next door neighbor to Key West. The island contains the only true, industrial
deep water port in the County, surrounded by traditional waterfront-based
businesses (e.g., fish houses, lobstering operations).
Although each community has a different vision, each LCP focuses upon
redevelopment over new development.
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C. Policy Framework:
One of guiding principles for the development of the LCPs includes action items for
the implementation of each plan.
Policy 101.20.1: Each Community Master Plan will include an Implementation Plan
consisting of action items and an implementation schedule as determined by the
action items and the Capital Budget. Accountability to the communities through the
process will be provided with a monitoring and feedback mechanism.
Note: The Land Development Code (LDC), specifically the "Tavernier Creek to Mile
Marker 97 US Highway 1 Corridor District Overlay" and the "Tavernier Historic
District Overlay". provides specific guidance and regulatory provisions related to uses,
landscape improvements; bike and pedestrian environment; and design guidelines
based upon the Tavernier LCP to address community character and aesthetics.
D. Strategies:
• It is recommended that the County complete the Lower Keys LCP and the Duck
Key/Conch Key LCP.
• County staff currently reviews development applications to assure compliance
with the applicable LCP. The County should consider adding a new policy to
Objective 101.20, requiring that future development and the provision of public
facilities be consistent with the recommendations and strategies of the LCPs.
• Consideration should be made to add policies to Objective 101.4 and develop
Land Development Code revisions related to additional overlay districts, such as
the Community Center Overlay in order to assure compliance with the specific
development guidelines of the LCP and to address the non-conforming issues of
each of the community areas.
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Issue Statement #2: Promote Attractive, Well-Planned Development Adjacent to
Services, and Existing Commercial "Hubs" with an Emphasis on Redevelopment.
(This is a related Issue Statement from Major Issue III Land Use/Mobility, also
discussed in that section.)
Note: Background, Issue Analysis, Policy Framework and Strategies are divided into
six (5) categories each for this section: Floor Area Ratios, Redevelopment Incentives,
Discouragement of Density Increases, Impact of Outside jurisdictional Constraints, and
Development of a Commercial Land Use District Category.
Issue Category#2(a):FloorArea Ratios(FAR)
A. Background: The concept of Floor Area Ratio (FAR) is a tool that helps to
explain how large a building can be built on a given site; the higher the FAR, the
larger the building. The total allowable floor area is derived by multiplying the ratio
by the acreage (43,560 square feet per acre) of the property. Understanding FAR is
important when reviewing development proposals in light of neighborhood or
design compatibility as it relates to building massing and scale.
The following analysis evaluates the FAR maximums in each of the Future Land Use
categories for compatibility with the existing `on the ground" non-residential floor
area and the development guidance provided by the LCPs, specifically the
"Community Center" concept, (e.g. Big Pine Key, Downtown Key Largo, and the U.S. 1
Corridor Enhancement Plans).
B. Analysis: GIS data was used to analyze the range of density or intensity of
existing land uses for the County. GIS data was obtained from the Monroe County
Property Appraisers Office in January 2010. This data provides parcel and floor
area for land uses which are grouped into Parcel Codes (PC). The Property
Appraiser's PC land use acreage does not necessarily match the newly created
Existing Land Use Map due to the method in which the existing land use data was
created. PCs were converted into a generalized existing land use category and form
the basis for the existing land use analysis. Property Appraiser data is used to
determine existing density and intensity as of January 2010.
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October 2011 Keith and Schnars,P.A.
Monroe County Comprehensive Plan Update
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The PC and existing land use discrepancies are due to:
• The Property Appraiser's Office only maps platted land whereas existing and
future land use maps comprise offshore islands and the Mainland portion of the
County which may not be platted in their entirety;
• The Property Appraiser's data includes submerged lands whereas the Existing
and Future Land Use Maps do not; and
• The method for creating the Existing Land Use Map was a two part exercise 1) to
convert the Property Appraiser's PC code into a generalized land use category
and map and 2) match the land mass depicted in the Future Land Use Map
Series.
Some of the densities and intensities are worth highlighting. According to the
Property Appraiser's data, the average single family density is at 2.2 units per acre.
Multi-family of less than 10 units averages 5.2 units per acre. Multi-family
"Compounds" use have the highest density at 18.2 units per acre. The average
density for all multi-family units is 6.7 units per acre.
The residential portion of mixed uses has a density of 1.65 dwelling units per acre;
likewise,the FAR for the commercial portion of mixed-uses averages 0.10.
At the time of data collection there were 5,667,248 square feet of non-residential
space with an average FAR of 0.0055 as seen in Table 8, below. Of the General
Commercial PC codes, the highest FAR is in the "Drive-in Theatre or Open Stadium"
(PC 31) category at 0.26098. The average FAR in the General Commercial category
is 0.013. In the Tourist Commercial category, the average FAR is 0.08535.
Commercial Fishing has the lowest average FAR at 0.05826.
For the Industrial uses, "Lumberyard" (PC 43) has the highest FAR at 0.12854;
however, the average of all industrial uses is 0.04492. Overall, no PC code category
exceeds a 0.3 FAR.
Table 8 below depicts the floor area ratio calculations by summarized PC code. It is
not intended to summarize floor area ratios by the existing land use category
classifications, but rather by PC code.
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Chapter 4:Major Issues Analysis 4-5 Evaluation and Appraisal Report
October 2011 Keith and Schnars,P.A.
Monroe County Comprehensive Plan Update
Evaluation and Appraisal Report
Table 8 - Existing Density and Intensity by Property Code (PC)
/
01 SINGLE FAMILY 269,036,094 6,176.2 13,596 NA 2.20 NA
NINE 11 NINE 11 MISSION 11 MINE IN IN 11 iiIiiii,iiiii 111lig
02 MOBILE HOME 304,084,770 6,980.8 4,987 NA 0.71 NA
i I Milli I Milli I Milli I Milli IMULTI FAMILY(10
03 UNITS OR MORE) 1,108,698 25.5 261 NA 10.25 NA
04 CONDOMINIUM 19,997,628 459.1 2,393 NA 5.21 NA
05 TIMESHARE 372,267 8.5 70 NA 8.19 NA
07 COMPOUNDS 19,124 0.4 8 NA 18.22 NA
MULTI FAMILY
(LESS THAN 10
08 UNITS) 12,488,031 286.7 1,493 NA 5.21 NA
LICENSED PUBLIC
LODGING
NA FACILITIES 7,624,63 175.0 2,199 NA 12.56 NA
SUBTOTAL 1 41,610,3781 955.21 6,4241 NAI 6.721 NA
MEN
---------------------
7!75,177,622.40,
5,177,622.40 118.9 196 NA 1.65 NA
118.91 NA 518,972 NA 0.10023
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October 2011 Keith and Schnars,P.A.
Monroe County Comprehensive Plan Update
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Table 8 - Existing Density and Intensity by Property Code (continued)
r
a r
r
STORES,ONE
11 STORY 2,560,859 58.8 NA 386,764 NA 0.15103
DEPARTMENT
13 STORE 20,627 0.5 NA 1,600 NA 0.07757
14 SUPERMARKET 237,189 5.4 NA 51,415 NA 0.21677
REGIONAL
15 SHOPPING CENTER 0 0.0 NA 0 NA 0.00000
COMMUNITY
16 SHOPPING CENTER 3,129,330 71.8 NA 629,659 NA 0.20121
hESTORY
FICE BUILDING,
17 1,838,872 42.2 NA 233,770 NA 0.12713
OFFICE BUILDING,
18 MULTI STORY 1,045,452 24.0 NA 111,862 NA 0.10700
PROFESSIONAL
SERVICES
19 IBUILDING 1,677,210 38.5 NA 110,303 NA 0.06577
AIRPORT,MARINA,
20 BUS TERM 165,922,094 3,809.0 NA 269,381 NA 0.00162
RESTAURANT OR
21 CAFETERIA 1,486,046 34.1 NA 128,242 NA 0.08630
FAST FOOD DRIVE
TH RU
22 RESTAURANT 276,325 6.3 NA 25,598 NA 0.09264
FINANCIAL
23 1INSTITUTION 676,3531 15.5 NA 67,139 NA 0.09927
INSURANCE
24 COMPANY OFFICE 0 0.0 NA 0 NA 0.00000
REPAIR SHOP (NOT
25 AUTOMOTIVE) 2,016,526 46.3 NA 162,679 NA 0.08067
26 SERVICE STATION 741,167 17.0 NA 62,575 NA 0.08443
AUTO
SALES/REPAIR,
27 MARINE EQUIP 611,711 14.0 NA 31,457 NA 0.05142
PARKING LOTS,
MOBILE HOME
28 IPARKS 1 9,372,3081 215.21 NAI 231,7801 NAI 0.02473
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October 2011 Keith and Schnars,P.A.
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Table 8 - Existing Density and Intensity by Property Code (continued)
/
WHOLESALE
29 OUTLET 193,653 4.4 NA 9,224 NA 0.04763
FLORIST OR
30 IGREENHOUSE 218,456 5.0 NA 1,742 NA 0.00797
DRIVE-IN
THEATER OR
31 OPEN STADIUM 20,071 0.5 NA 5,238 NA 0.26098
ENCLOSED
THEATER OR
32 JAUDITORIUM 11,940 0.3 NA 2,378 NA 0.19916
NIGHTCLUB OR
33 LOUNGE OR BAR 174,782 4.0 NA 13,059 NA 0.07472
BOWLING
ALLEY,POOL
34 1 HALL,MIN GOLF 1 28,7681 0.71 NAI 01 NAI 0.00000
SUBTOTAL 192,259,737 4,413.7 NA 2,535,865 NA 0.01319
TOURIST
35 ATTRACTION 440,844 10.1 NA 30,172 NA 0.06844
36 CAMPS 40,001 0.9 NAI 2,594 NA 0.06485
RACE TRACKS,
AUTO,DOG,
37 HORSE 764,519 17.6 NA 73,522 NA 0.09617
SUBTOTAL 1 1,245,3641 28.6 NA 106,2881 NAI 0.08535
oil
/ '
PACKING PLANT,
44 SEAFOOD ETC. 1,032,510 23.7 NA 60,152 NA 0.05826
Chapter 4:Major Issues Analysis 4-8 Evaluation and Appraisal Report
October 2011 Keith and Schnars,P.A.
Monroe County Comprehensive Plan Update
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Table 8 - Existing Density and Intensity by Property Code (continued)
/
41ILIGHT
MMANUFACTU RING 874,279 20.1 NA 56,326 NA 0.06443
HEAVY
42 INDUSTRIAL 449,499 10.3 NA 14,721 NA 0.03275
43 LUMBERYARD 150,723 3.5 NA 19,374 NA 0.12854
OTHERFOOD
46 PROCESSING 38,477 0.9 NA 3,009 NA 0.07820
47 GRAVEL PIT 7,853,609 180.3 NA 31,642 NA 0.00403
48 WAREHOUSING 6,016,921 138.1 NA 700,219 NA 0.11637
49 OPEN STORAGE 3,090,718 71.0 NA 4,521 NA 0.00146
SUBTOTAL 18,474,226 424.1 NA 829,812 NA 0.04492
IN
7PRIVAT'ESCHOOLR COLLEGE,
RESEARCH
72 CENTER 521,485 12.0 NA 90,885 NA 0.17428
83 PUBLIC SCHOOL 3,588,519 82.4 J 280,183 NA 0.07808
84 PUBLIC COLLEGE 0 0.0 J 0 NA 0.00000
SUBTOTAL 4,110,004 94.4 NA 371,068 NA 0.09028
Chapter 4:Major Issues Analysis 4-9 Evaluation and Appraisal Report
October 2011 Keith and Schnars,P.A.
Monroe County Comprehensive Plan Update
Evaluation and Appraisal Report
Table 8 - Existing Density and Intensity by Property Code (continued)
r
r
riCRCH 3,358,403 77.1 NA 190,612 NA 0.05676
PRIVATE
73 HOSPITAL 93,436 2.1 NA 27,705 NA 0.29651
74 NURSING HOME 7,667 0.2 NA 1,485 NA 0.19370
75 ORPHANAGE 0 0.0 NA 0 NA 0.00000
MORTUARIE OR
76 CEMETERY 1,181,899 27.1 NA 8,611 NA 0.00729
CLUB OR
77 LODGE 16,848,964 386.8 NA 352,887 NA 0.02094
PUBLIC
85 HOSPITAL 361,346 8.3 NA 90,300 NA 0.24990
SUBTOTAL 21,851,714 501.E NA 671,600 NA 0.03073
COUNTY
(OTHER THAN
86 PC LIST) 66,517,589 1,527.0 NA 233,680 NA 0.00351
STATE (OTHER
87 THAN PC LIST) 602,792,054 13,838.2 NA 79,915 NA 0.00013
MUNICIPAL
(OTHER THAN
89 PC LIST 524,181 12.0 NA 0 NA 0.00000
94 RIGHT OF WAY 28,584,780 656.2 NA 96 NA 0.00000
SUBTOTAL 698,418,605 16,033.5 NA 313,691 NA 0.00045
91 UTILITIES 6,891,176 158.2 J 188,552 NA 0.02736
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October 2011 Keith and Schnars,P.A.
Monroe County Comprehensive Plan Update
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Table 8 - Existing Density and Intensity by Property Code (continued)
/
81 MILITARY 66,245,929 1,520.8 NA 2,674 NA 0.00004
38 GOLF COURSE 11,360,085 260.8 NA 51,499 NA 0.00453
92 PRIVATE PARK 6,722,004 154.3 NA 17,075 NA 0.00254
SUBTOTAL 18,082,089 415.1 NA 68,574 NA 0.00379
NA NA NA NA NA NA NA NA
11 NINE 11 ii'llilIilill mill IIIIIIiII i NINE 11111 mill Iiiiiiii 1
VACANT
00 RESIDENTIAL 834,287,416 19,152.6 NA NA NA NA
VACANT
10 COMMERCIAL 29,443,348 675.9 NA NA NA NA
VACANT
40 INDUSTRIAL 0 0.0 NA NA NA NA
VACANT
70 INSTITUTIONAL 65,585,215 1,505.6 NA NA NA NA
SUBTOTAL 929,315,979 21,334.2 NA NA NA NA
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October 2011 Keith and Schnars,P.A.
Monroe County Comprehensive Plan Update
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Table 8 - Existing Density and Intensity by Property Code (continued)
r
r '
r
r
WASTE LAND,
MARSH,SAND
DUNES,NON
GOV OWNED
LAND-
96 EVERGLADES 5,235,306.82 120.2 NA 0 NA 0.00000
NATURE
CONSERVANCY,
FL KEYS LAND
99 ITRUST 214,813,929.24 4,931.4 NA 0 NA 0.00000
SUBTOTAL 220,049,236.06 5,051.6 NA 0 NA 0.00000
TOTAL
UNINCORPORATED
KEYS 1 2,797,885,433.70 64,230.611 26,2741 5,667,2481 NAI NA
r7AINLAND
FO RE
PARK
82 AREA 21,147,221,210.09 269,007 NA 119,577 NA 0.00001
FEDERAL
(OTHER THAN
88 PC LIS 8,190,914,532.32 122,909 NA 73,725 NA 0.00001
SUBMERGED
95 LAND 41,234,132.12 944 NA 820 NA 0.00002
NO PC CODE 879,651.12 20 NA 0 NA 0.00000
"SUBTOTAL29,380,249,525.65 392,880 NA 194,122 NA NA
GRAND TOTAL
MONROE COUNTY 32,178,134,959.35 457,110.611 26,2741 5,861,370 NAI NA
Source: Monroe County Property Appraiser's Office,January 2010,`Parcel-Public"Square foot area from
Property Appraiser's Office dataset`Public-Parcel" PC code 39,dating January 2010
NOTE:
1. According to the Monroe County Property Appraiser,"Compounds are single family homes that have a shared interest
in a common area.(email communication from Robbie Shaw dated August 26,2010)New Lodging Establishments-
Current
2. Square foot area from Property Appraiser's Office dataset`Public-Parcel" PC code 39,dating January 2010.Number of
rooms from licensed hotel/motel acquired from Economic Trends and Opportunities in Unincorporated Monroe County,
Inc.February 2011 report(Appendix 4).
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October 2011 Keith and Schnars,P.A.
Monroe County Comprehensive Plan Update
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Table 9 - Floor Area Ratio by Future Land Use District
0 ® r
1
1111
e
$ $ d
Agriculture A .020-0.25
Airport District AD 0.1
Conservation C 0.05
Education E 0.3
Industrial I 0.25-0.60
Institutional INS 0.25-0.40
Mainland Native MN .10
Military M 0.30-0.50
Mixed Use / Commercial 0.10-0.45
MC
Mixed Use/Commercial 0.25-0.40
Fishing MCF
Public 0.10-0.30
Buildings/Grounds PB
Public Facilities PF 0.10-0.30
Recreation R 0.2
Residential Conservation 0-0.10
RC
Residential Low RL 0.20-0.25
Residential Medium
RM 0
Residential High RH 0
Source: Policy 101.4.21,Monroe County Comprehensive Plan,2010
The compatibility of the existing FAR with the Future Land Use Map reveals that,
with few exceptions, parcels have not been built out to the maximum allowable FAR.
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October 2011 Keith and Schnars,P.A.
Monroe County Comprehensive Plan Update
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C. Policy Framework:
Goal 105: The FLUE directs the development of smart growth initiatives (Goal 105)
in conjunction with its Livable CommuniKeys Program (Objective 101.20) to protect
natural habitat and facilitate balanced and sustainable development.
Policy 101.4.21: Provides for the allowable maximum FAR within each land use
district.
The LCPs encourages development focused within Community Centers e.g. the Big
Pine Key LCP allows a maximum of .40 FAR to, "...foster a coherent and dense
streetscape..."z
D. Strategies:
• Due to the need for design flexibility and to provide incentives to develop in
hubs, or "Community Centers" to assure compliance with the LCPs and smart
growth strategies, a reduction in the allowable maximum allowable FAR (Policy
101.4.21) in each future land use district is not suggested at this time.
• The table within Policy 101.4.21 should be revised to add the minimum open
space ratios by future land use category.
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2 Action Item 4.1.5, "Livable CommuniKeys Master Plan for Big Pine Key and No Name Key",Action
Item pg.45.
Chapter 4:Major Issues Analysis 4-14 Evaluation and Appraisal Report
October 2011 Keith and Schnars,P.A.
Monroe County Comprehensive Plan Update
Evaluation and Appraisal Report
Issue Category#2(h):Redevelopment Incentives
A. Background: The results of the community meetings held in April 2010 to
identify major issues mirrors the desires expressed in the LCPs, which is to focus
upon redevelopment and infill.
The following analysis reviews the County's polices as it relates to the
encouragement of redevelopment of sites that are currently developed versus
development of vacant land.
B. Analysis:
239 Square Foot Ratio of Commercial Development per Residential Unit: The County
is subject to the NROGO which limits commercial construction by allowing a ratio of
239 square feet of nonresidential floor area for each new residential permit issued.
The County maintains an inventory tracking system to determine whether or not
sufficient commercial services are ultimately provided in the market place based on
the 239 square foot criteria. It is reported the allowable maximum for new
commercial construction is not necessarily reached or utilized each year. It is
believed the maximums are not reached due to other constraints such as parcel size
and availability, other zoning restrictions, and economic conditions.
However, some development is not dependent upon resident population growth
and should not be tied to residential growth. For example, demand for tourist retail
is a function of tourism activity; not a function of new household growth. Similarly,
industrial boat maintenance or marine research and development are not a function
of residential growth and should not be tied explicitly to residential activity. As
well, medical space serves tourists, workers and the elderly and this skews the
empirical "per new household relationship" which dictates how much non-
residential space may be developed.
While the 239 square feet per household is empirically observable, it is merely a
correlation and is not a causal factor in determining the demand for commercial
development.
NROGO Impacts: Although certain types of development are exempt from NROGO,
the additional limitations that may negatively impact redevelopment are described
below:
- Development with no net increase in nonresidential floor area;
- The redevelopment, rehabilitation or replacement of any lawfully established
nonresidential floor area which does not increase the amount of nonresidential
floor area greater than that which existed on the site prior to the redevelopment,
rehabilitation or replacement; and,
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Limitations on the amount of nonresidential floor area which may be transferred
to any on site. The amount of nonresidential floor area which may be
transferred to any one site shall be as follows:
1) No more than a maximum cumulative total of 4,000 square feet of
nonresidential floor area may be transferred to any one site.
2) A receiving structure with existing nonresidential floor area shall not be
expanded using transferred floor area if the expansion results in a structure
with more than 10,000 square feet of nonresidential floor area, except within
the urban commercial land use district, where a structure may be expanded
to a maximum total of 50,000 square feet of nonresidential floor area.
3) The amount of nonresidential floor area to be allocated shall be limited to a
maximum of 2,500 square feet for any one site, except for sites located within
a designated Community Center District area.
Due to the effects of NROGO restrictions and vacant commercial supply constraints,
the most effective and easily permitted commercial development is redevelopment
with no net increase in floor area. New commercial development is hindered by
floor area coverage limitations, a lack of available parcels, height restrictions,
limitation on trip generation, and NROGO constraints tied to residential
development. This effectively prohibits much new commercial development. This
leaves redevelopment as the most viable option given land use and availability;
however even this option is hindered by limitation to grow and expansion of
existing building space by limiting an increase in floor area.
Nonconforming Structures and Redevelopment: Monroe County Land Development
Code (Sec. 101-1) defines non-conforming structures as, "...any structure lawfully
existing on the effective date of the ordinance from which this chapter is derived
other than a sign, or any amendment to it rendering such structure nonconforming,
which does not comply with all of the standards and regulations of this chapter or
any amendment thereto".
When redevelopment efforts include nonconforming structures that are considered
part of the community character, flexibility will need to be considered. For instance,
many commercial properties county-wide do not comply with the required
shoreline setbacks for existing structures; however, these are considered part of the
community character. To the degree non-conforming uses will be brought into
compliance, a high degree of flexibility will be required so as not to cause the
elimination of the business in light of other restrictions, such as side yard setbacks
and buffers.
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October 2011 Keith and Schnars,P.A.
Monroe County Comprehensive Plan Update
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C. Policy Framework:
Policy 101.3.1: Requires that the County maintain, "...a ratio of approximately 239
square feet of new non-residential development for each new residential unit
permitted through the Residential Permit Allocation System."
Policy 101.3.5: Allows that, "...the ratio may be modified from time to time through
amendments to the Land Development Code based upon market and other relevant
studies."
Policy 101.8.8: Enlargements and extensions to non-conforming structures shall
be allowed provided that:
1.the improvement does not constitute a substantial improvement;
2. a non-conforming use is not located in the non-conforming structure; and
3.the nonconformity is not further violated."
Policy 101.8.10: With the following exception, non-conforming structures which
are damaged or destroyed so as to require substantial improvement shall be
repaired or restored in conformance with all applicable provisions of the current
Monroe County Code. Substantial improvement or reconstruction of non-
conforming single-family homes shall comply with the setback provisions of the
Monroe County Land Development Code except where strict compliance would
result in a reduction in lot coverage as compared to the pre-destruction footprint of
the house. In such cases, the maximum shoreline setback shall be maintained and in
no event, shall the shoreline setback be less than ten (10) feet from mean height
[sic] water."
D. Strategies:
• Consider discontinuing the 239 sq. ft. commercial floor area NROGO allocation
determination formula.
• Instead of the allocation ratio method, consider developing a policy that
provides a flat annual limit of commercial floor area to be allocated through the
NROGO system.
• The County should give consideration to allowing a square footage bonus to
offset rehabilitation costs, green building practices and relaxation of policies
regarding upgrades to non-conforming structures.
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October 2011 Keith and Schnars,P.A.
Monroe County Comprehensive Plan Update
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• The County should evaluate and consider the relaxation of existing shoreline and
property line setback requirements, as appropriate, where wastewater, drainage
and stormwater issues are met and where land is located within Tier III areas.
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Chapter 4:Major Issues Analysis 4-18 Evaluation and Appraisal Report
October 2011 Keith and Schnars,P.A.
Monroe County Comprehensive Plan Update
Evaluation and Appraisal Report
Issue Categoa 2(c):Discouragement ofDensity Increases
A. Background:_The results of the community meetings held in April 2010 to
identify major issues mirrors the desire expressed in the LCPs: Focus upon
redevelopment and infill.
B. Analysis: Based up the County's Future Land Use map, there is adequate
land, both vacant and developed to accommodate the future population estimates.
It must be noted that 61.7 acres of vacant lands located in Tier I have a land use
designation of Mixed Use. These parcels could form the basis for a "Sender Site"
inventory for commercial intensity bonus to encourage redevelopment as noted in
the "Nonconforming Structures" discussion above.
C. Policy Framework:
Policy 101.5.8: Monroe County may develop a program, called Transfer of ROGO
Exemption (TRE) that would allow for the transfer off-site of units to another site in
the same ROGO sub-area.
Policy 101.13.5: Monroe County shall map potential Transferable Development
Rights (TDRs) sender and receiver sites and map parcels from which development
rights have been transferred.
D. Strategies:
• The County should consider creating a policy to allow the transfer of ROGO
allocations or exemptions from Tier I, II, and III-A to Tier III; however, there
should be no allowable increase in density on a parcel of land unless such
density is transferred from a Tier I to Tier III parcel.
• While the County has maps of the various habitat types identified as "sender
sites" in Policy 101.13.4, the County maps currently do not track the movement
of TDRs. The County should review this policy and determine the most
appropriate way to track the transfer of TDRs.
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Issue Category#2 (d):Impact of Outside jurisdictional Constraints
A. Background: Federal and State government involvement in the County land
use planning and decision-making is extensive due to the presence of aquatic and
terrestrial resources that are of regional and national significance. This involvement
has heavily influenced the County's comprehensive planning process. Many of the
County's goals, objectives, and policies have been mandated by the State pursuant to
the Area of Critical State Concern designation or by the Federal government as
conditions for the County's continued participation in the National Flood Insurance
Program.
B. Analysis: On September 12, 2005, Judge Michael Moore of the U.S. District
Court in Miami issued a ruling enjoining the Federal Emergency Management
Agency (FEMA) from issuing flood insurance for new developments in the habitat of
the endangered Key Deer and seven other federally listed species in the County. The
injunction will remain in place until FEMA and the U.S. Fish and Wildlife Service
(FWS) develop a plan to protect these species from the development related to
FEMA's flood insurance program. In accordance with this ruling, FWS supplied the
court with a list of properties which the agency had determined contained suitable
habitat for any of the eight species.
C. Policy Framework:
Note: Policies related to coordination activities are identified in the Major Issue
category "Intergovernmental Coordination':
This situation is an example of the issues facing the County relative to State and
Federal jurisdictions. There is a direct cost to the County associated with staff time
and a concern of a potential for liability in the case of County denial of a
development application for the affected parcels.
D. Strategies:
• It is recommended that the County evaluate the impact of outside jurisdictional
constraints as it relates to potential County exposure pursuant to State and
Federal "property rights" law, and identify opportunities to reduce such
exposure where possible and appropriate.
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Issue Category#2(e):Development of a Commercial Land Use District Category
A. Background: Currently, the County does not have an exclusive commercial
land use category. The two existing commercial use categories: Mixed
Use/Commercial and Mixed Use/Commercial Fishing include a residential
component.
B. Analysis: Due to the potential for encroachment and impacts from litter and
pets from residential uses, mixed use parcels adjacent to natural habitat in Tier I
have the potential to negatively impact these lands.
C. Policy Framework:
• Objective 101.4 and its associated policies identify the various land use
districts and the uses allowed within each district, but again, there is no
Commercial land use category.
D. Strategies:
• The County should consider creating a policy for a Commercial Future Land Use
Designation that does not allow residential uses.
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II. Economic Sustainability3
Issue Statement: Promote economic sustainability, in a manner consistent with
environmental stewardship, with a special focus upon existing businesses.
A. Background: The County is primarily comprised of the Florida Keys, a
community of islands ecologically fragile stretching some 130 miles in an
archipelago from south of Miami at Biscayne Bay to Key West. The total land area is
some nearly 1,000 square miles, distributed among 800 +/- keys, excluding the
Everglades National Park which is located on the mainland. The largest of these
keys include Key Largo, Islamorada, Marathon, Tavernier, Big Pine and Key West.
Collectively, the Keys represent considerable natural and economic resources
including two national parks, world renown tourism and destination resorts, a long
established commercial and recreational fishing industry and extensive accessible
coral reefs which support a large recreational snorkeling and scuba diving industry.
Today the County faces a variety of economic constraints. These stem from national
trends in the structure of employment and local conditions which contribute to a
lack of investment. Further, a determination made at the State level has concluded
growth and development has reached its effective physical carrying capacity in the
Keys. The result of this determination is a regulatory constraint on growth which
allows only a very small and limited amount of net new residential and non-
residential construction each year. This regulatory constraint is known as ROGO
(Rate of Growth Ordinance) for residential development and NROGO for non-
residential development. ROGO has been in place since 1992; the County adopted
NROGO in 2002.
The combined effect of nearly 20 years of restrictive development regulation,
increasing environmental regulation coupled with infrastructure capacity
constraints, the need for rapid emergency evacuation plans and the national shift in
employment structure and trends has slowed economic development throughout
the County. To illustrate: During the 1980's the County employment base grew by
50 percent. In the two decades following, the employment base has only increased
by 10 percent.
From an economic structural standpoint, dynamic long term trends at the national
and global levels shift the economic structure of the local economy. Absent a highly
focused and long term effort to modify the effect of these forces, the global and
national trends will prevail. These global and national structural trends include a
shift away from industrial production in the United States and a shift toward a
3 Unless otherwise noted, the information and recommendations discussed in this Major Issue topic
is extracted (either in part or completely) from the "Monroe County Economic Trends and Conditions
Report", 2010, as prepared by Fishkind and Associates and Keith and Schnars, P.A. and attached
herein to the EAR as Appendix 4.
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service and retail based economy. At the national level some 50 percent of
manufacturing jobs have been lost in the United States since 1960. By the same
measure, service and retail positions have grown by more than 250 percent each. In
Florida, which has never had the share of manufacturing and industrial employment
as found elsewhere in the nation, the structural employment shift to service and
retail has been more pronounced over this period. Thus, in the face of these forces,
employment by industry type in the Florida Keys has shifted in a more pronounced
way toward a service and retail based economy.
There are numerous other factors which contribute to economic opportunity
outlook in the County. These include: the location of the County with respect to
access to mainland United States, the lack of existing available raw materials, a lack
of plentiful quantities of potable water which affects water pressure and fire
insurance ratings, the geographic constraints associated with the physical layout of
the Keys stretching as an archipelago over 130 miles, and very low lying flood prone
lands which are subject to periodic violent and destructive hurricanes. Finally, the
cost of development coupled with the overall shortage of vacant lands hinders the
ability of the local labor force to reach levels sufficiently high to support large new
industrial or commercial facilities. These factors impact the diversity and economic
development potential of the County over the long term.
Despite this, the very constraints which hinder certain kinds of economic expansion
are also what assure that the County remains special and unique, giving rise to its
pre-eminent attractiveness for tourism and vacation home living. The Keys are
remote, and vibrant with nature and marine environments yet accessible for
weekend getaways or longer.
Within this context there are opportunities to expand the economic base of the
County which can and should be explored.
B. Analysis: The dominant industry throughout the County (incorporated and
unincorporated areas) is tourism. This segment of the economy has held the lead
position in employment in the County for more than 30 years. The tourism industry
category of "Hotel/Eat-Drink/Entertainment" includes eating and drinking
establishments, hotel/motel space along with seasonal rental properties and
entertainment venues such as museums, theaters parks and beaches. This category
represents about one third of the County employment, as measured by jobs covered
under unemployment compensation. Half of the tourist industry is concentrated in
Key West. This sector has added more jobs county wide than any other since 1980
which is shown in the Table and Figures that follow.
As illustrated in Table 10, "Government" holds the second place in the number of
jobs county wide. This includes Federal, State, and Local government jobs; however
it excludes active duty military personnel stationed at installations in the County.
Active duty military personnel add some 1,200 persons representing the NAS Key
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West complex of facilities. With the addition of the active duty personnel,
government employment would still be the second largest employment segment in
the County.
In third place is the number of employees in the County is the "Business
Services/Finance/Real Estate" category. The share of employment in this category
has nearly doubled in 30 years and the number of employees has approximately
tripled.
"Other Retail" outside of tourist oriented establishments (eating, drinking, and
entertainment) had ranked third in volume of covered employment until 2010. By
2010, employment in this category had fallen to the fourth largest in the County. It is
unclear if the decline in "Other Retail" is cyclical and related to the recent recession
or permanent and structural.
Table 10 - Monroe County Employment by Industry(Number of jobs)
1980 1990 2000 2010
Hotel/E:at-Drink/Entertainrmient 5,732 9,685 11,396 10,506
Government 4,578 5,400 6,052 5,808
Business Service/Finance/RE 1,570 1,811 2,322 4,392
Other Retail 3,126 4,978 5,738 3,790
Other Services 765 1,817 3,215 2,379
Construction 1,310 1,786 2,233 2,150
Industrial/Warehouse 2,022 2,737 2,774 2,008
Medical/Health Services 699 1,569 2,150 1,895
AgSvc, Fishing, Water Trans, Food Proc 1,064 1,025 800 648
TOTAL 20,866 30,808 36,680 33,576
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In addition to looking at the composition of employment by industry in the County,
the changes in composition over time were also examined. Figures 1 and 2
illustrate how the mix by industry has evolved over the past 8Uyears.
AM
Figure 1 ' Share of Employment by Sector 1980'2010
,0011
Figure 2' SKxmre of Employment by Sector 1980'2010
"Other Services" is the fifth largest employment category (Figure 2). Employment
in this category has also tripled since l98U, though the share has declined as other
sectors grew at faster rates.
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"Construction" is the sixth largest employment sector in the County economy.
Construction employment as a share of countywide employment has changed little
in 30 years.
"Industrial/Warehouse" employment has remained essentially unchanged at 2,000
employees over the past three decades. The lack of growth in this sector, despite 50
percent overall employment gains county wide, is symptomatic of the decline in
industrial and manufacturing employment in the United States and also of the
challenges faced by a remote location with limited transportation and labor force
opportunity.
Employment in the "Medical/Health Services" category has tripled since 1980.
While this category is small as a share of total employment, it is among the fastest
growing sectors of the County economy (Figure 2).
Covered employment in the "Agricultural Services, Fishing, Water Transportation,
and Food Processing" category is the smallest among all categories in the County.
This may be misleading to some degree in that much of the employment in the
marine and fishing industry locally is comprised of proprietorships and self
employed. This means the ranks of those in the marine and related industry may
not appear in the measure of covered employment, for the purposes of
unemployment compensation. For example there are some 2,500 commercial boat
licenses in the County, suggesting the marine industry is substantially larger than
what is depicted in the covered employment data series. Because of the island
nature of the County and the obvious reliance on marine and coastal activity, the
marine industry will be examined in a separate light. Of note is that within the
covered employment data series, which refers to employees eligible for
unemployment compensation, employment has fallen by nearly 40 percent in 30
years, from approximately 1,000 persons to 650 today (Apr. 2011).
Occupational license data was reviewed to assess marine related employment and
activity. Occupational license data includes charter boats and captains, marina and
boat storage, mobile marine repair, marine related retail, marine wholesale supply,
and marine repair. There are 1,928 such licenses as of DATE. Some boat and
captain licenses are duplicative resulting in an estimated 1,500 active occupational
licenses. Not all of these licenses will result in a full time job and many hold a
captain's license but are simply not active. Based on this information we find
marine and marine related services remains the smallest employment category in
the County.
In addition to looking at the composition of employment by industry in the County,
the changes in composition over time were also examined. Figures 1 and 2
illustrate how the mix by industry has evolved over the past 30 years. Change in the
share of employment is an indicator of which industries have momentum and may
be expected to have growth potential in the future. In this section the changes in
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share were examine. By identifying employment sectors which are growing, it helps
identify the key components of the local economy which offer opportunity for the
future.
The employment segment with the greatest increase in share during the past three
decades is "Business Services/Finance and Real Estate" (see Figure 3, below). The
dominant component by far within this category is business services. Business
Services as a category consisting of legal, accounting, architectural, computer and
management consulting, research, advertising other professional services and
business support. Finance and real estate are comparatively stagnant and given the
current economic conditions may not be expected to show significant improvement
in the short to medium term. Thus, "business services" is identified as a sector
offering substantial employment growth. Its share of employment has doubled over
time and is now the third largest employment segment in the countywide economy.
--------------------------------------------------------------------------------------------------------------------------------------------
2 , s
0. 19 (7
4 u`.
Figure 3 - Net Change in Share of Employment by Type 1980-2010
As noted prior, the "Hotel/Eat-Drink/Entertainment" category, representing the
tourism industry, includes eating and drinking establishments, hotel/motel space
along with seasonal rental properties and entertainment venues such as museums,
theaters parks and beaches. This is the largest sector of the County economy by far,
accounting for at least one-third of all employment countywide. It is the second
fastest growing segment of the economy as well, having gained more than five
points in share since 1980. The tourism industry has long been the focal point of the
County economy.
"Other Services" includes automotive service, personal care, laundry, civic and
religious organizations and repair services for household and commercial
equipment. "Other Services" is the third fastest growing employment segment
countywide. This segment has shown very consistent growth over the decades.
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Though the share of this segment is small (only the fifth largest of 9 groups) the rate
of growth in this segment is the fastest of any segment in the local economy.
"Medical and Health Services" has also grown very rapidly since 1980. Since year
2000 the average age of all persons in Florida has increased from 39 years to 40
years and from 37 years to 38 years in Miami-Dade. In the County however, the
average age of all persons has increased from 41 years to 43 years. The County
population is older and has increased by a greater amount than the population in
Miami-Dade County and throughout Florida. By 2030 the University of Florida
projects 44 percent of the County population will be age 55 and up, compared with
32 percent in Miami-Dade and 38 percent statewide. The older population will
require more medical services supporting an opportunity for continued increases in
medical services in the County.
The remainder of the major employment segments in the County has shown no
increase in the share of employment. These comparatively slow growth segments
include "Government", "Industrial/Warehouse", "Other Retail", "Marine Industries"
and "Construction". While most of these sectors added jobs overall from 1980-2010,
the pace of growth was below average and so each sector lost market share overall,
or in the case of construction increased share only very marginally.
Tourism: The dominant industry throughout the County is tourism. It is the largest
employment sector countywide. The tourism industry has had the second fastest
growth in market share and added by far the most number of jobs of any
employment sector in the County since 1980. As noted earlier, the tourism industry
represents about one third of the County's economy, as measured by employment.
The Keys hosted approximately 3.3 million visitors during 2009, with some 2.2
million visiting Key West. Of those visiting Key West, 39 percent were cruise ship
visitors. Fully two thirds of visitor activity countywide is concentrated in Key West.
While the tourism industry is large and adds substantial employment, wages are
lower than average, representing about 76 percent of the average wage countywide.
The impact on household earnings is perhaps less dramatic in as much as 1 in 3
tourism industry workers holds more than one job. Also, many persons in the real
estate industry sell or rent vacation homes and the average wage among these
workers is almost 90 percent of the average wage. Nonetheless, the strength and
attractiveness of the tourism industry in terms of jobs and long term growth is offset
to some degree by lower wages.
By measures created by the Monroe County Tourist Development Council, the
tourism industry in its entirety (including multiplier effects) is responsible for 60
percent of total County output(sales) and half of all employment countywide.4
4"Study of the Monroe County Tourism Workforce",August 2006,Monroe County TDC,page 8
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October 2011 Keith and Schnars,P.A.
Monroe County Comprehensive Plan Update
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Thus, it is clear the tourism industry is a critical component of the functioning of the
countywide economy. Policies which encourage expansion of the tourism industry,
promote higher wages for tourism industry workers, and continue to support the
strength in employment gains should be considered.
Tourism and Visitors: The County tourism industry is highly concentrated in Key
West. The Tourist Development Council data illustrate the nature of visitor activity.
As noted earlier fully one third of all employment in the County is concentrated in
the tourism industry. The multiplier effect of this activity increases the overall
impact and importance of the tourism industry.
Table 11 - Visitors to the Florida Keys by Type and Location
Flohda Keys Visitor(Person-Thp,IEstimates
2003 2004 2005 2006 2007 2008 2009
Key West Overnight Visitors 1,309,559 11,303,633 1,046,1111 11,063,752 1,09�4,647 1,1112,978 1,165,327
Key West Day Trippers 242,268 241,172 237,460 196,794 202,510 205,901 206,263
Cruise Ship Passengers 11,067,22,2 934,070 925,795 888,183 816,9119 739,218 859,409
Total Key West Visitors 2,619,049 2,478,875 2,,209,366 2,148,729 2„1114,076 2,058,097 2„230,999
All Keys Overnight Visitors 2,425,110 2,4114,135 1,937,244 2,030,062 2,089,02,1 2,169,565 2,092,732
All Keys Day Trippers 448,645 446,6115 439,742 375,561 386,469 401,369 370,414
Cruise Ship Passengers(Key West Onfy) 1,067,222 934,070 92,5,795 888,183 816,919 739,218 859,409
Total All Keys Visitors 3,940,977 3,794,820 3,302,7811 3,293,806 3,292,409 3,3110,152 3,322,555
Monroe County Lodging Occupancy%: 72.2,% 711.2% 70.0% 66.5% 68.1% 67.5% 70.3%
S' arrecsc.l rarae L`naAran'To,I s Derelojnnew Council,.err nh Thwel R'eserwrch
Tourism and Hotels: By year-end 2010 there were 8,796 hotel rooms in the County
according to Smith Travel Research data (see Figure 4,below). There has been a net
loss of 452 rooms since year-end 2003, some 5 percent of the countywide hotel
room inventory. Hotel room inventory had declined by 12 percent from 2003-2007
and has rebounded adding 366 rooms since 2007. An additional 4,800 seasonal
units are found in resorts. The number of resort units has grown by 19 percent, 772
units, since 2003, according to the Florida Department of Business and Professional
Regulation. The total inventory of visitor accommodations has been relatively
stable or grown slightly over the past decade, now totaling more than 13,500 units,
though the mix and type of accommodations have changed from shorter stay hotel
rooms to longer stay resort units.
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8,400
7,600
Source: Smith Travel Research,Flshkind&Associates,Inc.
Figure 4 ' Monroe County Hotel Room Inventory
Among hotel rooms throughout the County it is estimated that 2,199 rooms are
located within the unincorporated areas. 0[the rooms in the unincorporated areas
of the County 54 percent are within structures older than 40 yearn old. From a
building use and architectural perspective, 40 years is a generally accepted measure
of the useful life of buildings and structures. By the end of the 20 year planning
horizon, an additional 80 percent of hotel properties will age into the greater than
40 year old category, if no renovation in undertaken. Figure 5 nhovvn the age of
hotel room inventory in the unincorporated portions o[the County, ano[year 2UlU.
Source:The Monroe County Property Appraiser; PishNnd&Associates,Inc.
Figure 5 'Age of Hotel/Motel Structures,
Unincorporated Monroe County 2010
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0ctuberZ011 Keith and 8cboury,P.A.
Monroe County Comprehensive Plan Update
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While there are many buildings standing today which are much older than 40 years,
older buildings require extensive investment and renovation to maintain their
usefulness. This is particularly here in the Florida Keys which has a very
challenging climate and environment regarding stability and livability of built
structures. The climate of the Keys increases the wear and tear on buildings and
structures. Issues such as mold, sun exposure, heat exposure, salt exposure, and
storm damage can render buildings useless very quickly. The majority of inventory
of hotel motel rooms in the County today is obsolete from a building age standpoint.
This means substantial and ongoing investment and renovation is required to
maintain these structures.
Over the next twenty years as older properties continue to age, 84 percent of
unincorporated hotel/motel structures will exceed their useful lives. Over the next
twenty years, the vast majority of inventory of unincorporated Monroe County hotel
and motel rooms will require either replacement or extensive renovation. This
places the hotel industry throughout unincorporated Monroe County in a precarious
position from the standpoint of needed capital investment over the planning
horizon. This condition also highlights the redevelopment opportunity which is
likely to become increasingly evident over the planning horizon. The need for hotel
property investment coupled with a prohibition on hotel expansion due to seasonal
occupancy constraints means new hotel tourists are likely to be accommodated in
newly built seasonal residential housing units and hotels which are in need of
renovation will be unable to justify needed capital investments.
Effects of the Hotel Moratorium on Tourism in Unincorporated Monroe County:
Currently, there is a County ordinance and Comprehensive Plan policy effective in
the unincorporated area which prohibits any new hotel development throughout
the unincorporated keys. This ordinance precludes all new hotel room/unit
development. The development prohibition is in place due to the County
designation as an Area of Critical State Concern (ACSC). Under the ACSC designation
hotel/motel rooms are considered residential units and therefore would require
allocation from ROGO, further reducing available increments of new housing supply
under ROGO. Generally accepted and standard operating hotel financial
performance norms indicate hotel operations are at the financial breakeven point
near 65 percent occupancy5. It is for these reasons that in unrestricted markets,
there are usually few new hotels built when annual occupancy is consistently below
65 percent. However, when annual occupancy is consistently above 65 percent, the
market typically responds by adding new hotel rooms until annual occupancy falls
back to approximately 65 percent. Throughout the hotel industry, occupancy runs
5
http://www.thefreelibrary.com/U S+hotel+industry+now+breaks+even+at+5 5.5+percent+occup anc
y.-a021173755 and http://www.thefreelibrary.com/Trends+in+the+hotel+industry.-a0131592609
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October 2011 Keith and Schnars,P.A.
Monroe County Comprehensive Plan Update
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between 63 percent and 73 percent on an annual basis, under normal market
conditions.
By prohibiting new hotel construction, the tourism industry in the unincorporated
areas is artificially constrained and industry growth will be choked off. The tourism
industry cannot grow because effective occupancies are near 100 percent during the
peak season and the demand for hotel rooms exceeds supply during peak season
months. During the off-peak season occupancy is unsustainably low. As a result,
new peak season tourist accommodations are provided through the rental of
seasonal homes rather than full service hotels. This is evidenced in part by the
decline in homestead property tax exemptions for single family units.
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Because the County market is so highly seasonal, peak season occupancy is already
near 90 percent, meaning effective occupancy rates are approximately 100 percent.
Thus, in order to reach economically sustainable annual occupancy rates; occupancy
in the off season months must be increased by more than 100 percent. That is,
tourism must nearly double during the months of September and October and must
increase in other low occupancy months in order for annual occupancy to reach
economically sustainable levels. This seasonal weighting confounds the industry
ability to add economically sustainable new hotel inventory. Figure 6 shows the
past eight years of monthly occupancy in the County.
00
qp
6 "s l w �R
M, A , �
A
IpJ'
I
�wYl. r
—'i dii^a d o g, --s��20
Source: Smith Travel Research,Fishkind&Associates,Inc.
Figure 6 - Monroe County Monthly Hotel Occupancy
Because new hotel rooms cannot be added, the tourism market cannot grow, except
in the form of new seasonal single family or multi-family residential housing units.
Demand is particularly constrained in the case of peak on-season months. During
peak season months, hotel occupancy is at or near 90 percent. The 90 percent level,
however, is effectively 100 percent occupancy given staffing interruptions, rooms
unavailable due to repairs, and late night non-arrivals or cancellations, which leave
insufficient time to re-book the room. Thus, the only months where occupancy can
be raised to help make new hotels more economically viable are the months when
tourists typically do not travel to the Keys. This makes new hotel development a
catch-22 in that greater economic viability is best achieved through gains during
months when economic viability is at its low point and barely attainable. For
existing hoteliers this necessitates a policy and support that will stimulate and
encourage redevelopment, add to peak season revenue potential perhaps through
more rooms/capacity in the same footprint and substantially build off-season
occupancy.
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Changing the seasonal visitation pattern in the Keys may require very high cost low
margin-of-return advertising campaigns. This must also be viewed in light of the
very substantial rate reductions which are found in September and October. To
illustrate the revenue and rate reduction issue, during year 2010, revenue during
the peak season was $192 per available room. During the off season this fell to $70.
Rates would have to decline even more sharply to improve off season occupancy or
new target markets identified and captured.
Because of the regulations which prohibit new hotel construction, the market has
reacted by filling the need for additional hotel rooms with construction of new
residential units, designed for seasonal occupancy. Some of these new units may
appear hotel or resort-like in design and specification, being built as large as
possible to accommodate as many people as possible. This is evidenced in part by
the increasing number of rooms over time in newly constructed residential units, as
reported by the Monroe County Property Appraiser.
Waterfront Related: Among traditional island communities in Florida through the
past 100 years, there has been a reliance on fishing, boating and marine
environments and marine related industry such as shipping and boat repair.
Through a century of change, the marine industry has declined while other areas of
employment have grown in dramatic fashion. In terms of the volume and share of
employment, there is very little fishing, food processing or water transportation
related employment today, compared with employment in retail, finance and the
broader service sector. The fishing industry accounts for only 1 percent of
employment in island communities. Adding food processing, marine shipping,
marine repair and marina raises the share to 2 percent in the County.
Recreational boating has expanded. This has opened opportunities for pleasure boat
repair, boat maintenance and storage. Pleasure boat licenses have more than
doubled in the Keys since 1980 (see Figure 7). This speaks directly to an important
segment of the economy which is the vacation home or second home industry.
Recreational waterfront activity supports redevelopment of waterfront areas such
that the historic character and some historic uses and building are preserved while
the economic drivers supporting waterfront properties is tourist and vacation home
based. This has meant a waterfront redevelopment transition to service and tourist
related activities similar to Savannah, Georgia; Des Moines, Iowa and old harbor
areas such as Boston and Baltimore. The result is a vibrant waterfront which can
accommodate some historic fishing and boating related commercial activity.
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............. ............. ............. .............
1,0000 . . . . . . . . . . . . . .
5000
0
1980 1988 19198 20,08
Figure 7 - Recreational Boat Licenses in Monroe County
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At the same time, as measured by commercial fishing licenses, the volume and size
of the commercial fishing industry has declined sharply over the past 30 years.
Commercial fishing licenses have fallen by 25 percent and the volume of seafood
catch has declined some 70 percent(see Figure 8).
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Figure 8 - Commercial Fishing Industry- Monroe County
Water related employment is the smallest employment segment among island
communities today, and equally small elsewhere in Florida. Based on trends in
commercial registrations, fish and shellfish catch volumes, and covered
employment, the marine industry is not a growth industry in the County. Nor is it a
growth industry in other island communities or elsewhere in Florida. Within the
marine industry, what exists today is an important component of the history and
character of the County. It is an important aspect of the local restaurant business
which offers "fresh catch".
Given the past 30 years of decline, the historic nature of the marine and fishing
industry and the loss of waterfront property to non-marine uses, there is a need to
develop a support system to help maintain the viability of the industry as it
currently exists. The marine industry as it relates to fishing can become a cultural
focal point, support surrounding uses and continue to support and build the local
restaurant industry. However, the marine industry is not likely to become a
substantial employment generator in the future, nor a large-scale or growing aspect
of the Keys economy. At most the entire value of commercial seafood and shellfish
landings (before expenses) is less than 5 percent of total personal income in the
County. Today, the economy of the Keys has developed, expanded and diversified.
Understanding this diversification is integral to planning for new economic
opportunities.
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There is an opportunity for growth in marine related industries outside of fishing.
This includes marine research, coral reef preservation and marine related eco-
tourism. One such important facility is the Navy's Marine Corrosion Test Facility at
Key West/Stock Island. Through the process of military technology transfer for
civilian use, the ongoing research and technology at this facility offers the potential
to help develop local industry synergies with respect to marine materials testing,
underwater audio and marine biology. Coral reef research and preservation is of
vital national and international interest. The Florida Keys are well suited to conduct
such research in conjunction with nearby universities and national funding sources.
This discussion is expanded upon later in this section.
Livable CommuniKeys Plans - Vision and Outlook: Having conducted an economic
and strategic overview of the unincorporated areas of the County, employment
trends, strategic concerns and opportunities were identified. In order to make
actionable recommendations which are consistent with the desires and strategic
direction of Keys residents the Livable CommuniKeys Plans (LCPs) were examined
for the purposes of identifying where these plans might intersect with the
economics presented and the economic development direction presented in the
Livable CommuniKeys Plans.
The 2010 Economic Trends and Opportunities in Unincorporated Monroe County
report is provided as Appendix 4 in this EAR document. An appendix item to this
report contains excerpts from the Livable CommuniKeys Plans provided to highlight
and help synthesize the integration between economic development objectives and
community goals such as livability and sustainability. Sustainability in these
instances may include environmental, economic and social/cultural aspects of the
challenge of sustainable living practices in the face of the physical constraints of
island living. The goal of this section of the report is to identify sustainable
economic directives from the LCPs and integrate these with economic development
opportunities, goals and objectives.
Summary of Upper Keys - Key Largo LCP Findings: Commercial redevelopment of
existing sites within the original footprint, with no increase in building square
footage is allowed and encouraged in the Key Largo LCP.
New high intensity commercial development is prohibited. Redevelopment which
expands a local business floor area is prohibited. New hotel development is
prohibited. New commercial development greater than 2,500 square feet on any
one site is prohibited. Waterfront seasonal housing which may replace water
related or water dependant uses is under moratorium. As a result of the highly
physically constrained conditions, lack of viable developable sites and regulatory
prohibitions, most new commercial development is disallowed in the upper Keys or
highly constrained.
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Summary of Middle Keys: The functional population of the Middle Keys is projected
to increase by fewer than 100 persons through year 2030. This will translate to a
need for approximately 50 additional dwelling units through year 2030. The lack of
developable lands and limited growth suggests the economic opportunity in the
Middle Keys is primarily support of the valuation and tax base of existing developed
property.
Summary of No Name and Big Pine Keys LCP: There is very limited new development
opportunity on No Name and Big Pine Keys. The combination of limited land
availability, concurrency constraints and other restrictions effectively limit new
commercial development to very low levels if at all. The local community does not
wish to embark on a path that would bring regional users or regional facilities to
these areas.
These conditions point to the need to build sustainable communities through
redevelopment.
Summary of Stock Island and Key Haven LCP: The working waterfront and major
employment center of the unincorporated Keys is located on Stock Island. The
resident population is highly engaged and supportive of maintaining the
employment opportunities associated with marine dependent activities including
fishing, ship building and repair, tour guides and other water or waterfront
dependent activities such as marine research. Residentially zoned land is built out
on Stock Island. Remaining vacant lands are either Mixed Use or Industrially zoned.
According to the Stock Island LCP, the focus for economic development opportunity
on Stock Island is support of the marine industry, preservation of marine uses, and
redevelopment of existing parcels with a focus on marine industry services, facilities
and support. Opportunities for marine related science and technology research are
strongest in this planning area due to the proximity to the Navy's Marine Corrosion
Test Facility and the Key West Airport,which facilitates travel.
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Within these plans are distinct regions within the unincorporated keys which reflect
their own set of unique local conditions and geographically specific economic
development goals (see Figure 9, Keys Planning Areas Map). These sub-regional
characteristics are quite distinct from each other and distinct from the
concentration and intensity of the Key West tourist industry.
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The Upper Keys have characteristics which lend considerable strength to focusing
the definition of this area as a marine sanctuary, with recreational diving,
recreational boating, eco tourism, and marine research.
The Middle Keys are more residential in character, and include high value vacation
and second home communities which are similar to other beach and island
communities in Florida such as Destin, Marco Island, and Longboat Key. There is
continued opportunity for tax base growth.
The Lower Keys are in close proximity to Key West's main tourist destination. The
Lower Keys can be seen as a bedroom community to the Key West tourist workers.
This area is also more industrial and includes much of the working marine industry
such as fishing, boat repair, and tour guides. The Naval Air Station Key West is a
large presence in the Lower Keys. Facilities on Boca Chica and Key West lend
substantial economic stability to the area. There are some 1,200 permanently
stationed personnel plus rotating squadrons throughout the year. Per diem
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payments to visiting personnel and salaries of stationed personnel represent a
substantial source of local income being brought into the area. This has substantial
ripple effect and is a key economic driver of the Lower Keys economy. Also located
in the lower keys is The Naval Research Lab. The Lab is housed within the Naval Air
Station at Key West and is located on Fleming Key. The Lower Keys is the center for
marine research. The Naval Research Lab command includes:
"The Marine Corrosion Test Facility which offers an ocean-air environment and clear,
unpolluted, flowing seawater for studies of environmental effects on materials.
Equipment is available for experiments involving weathering, general corrosion,
fouling, and electrochemical phenomena, as well as coatings, cathodic protection
devices, and other means to combat environmental degradation."
"The laboratory has an unparalleled database for natural seawater exposure testing
and marine-related materials evaluation. It receives a plentiful, unpolluted supply of
natural undisturbed Gulf of Mexico seawater throughout the year. The tropical climate
is ideally suited for marine exposure testing and provides minimal climatic variation,
with a stable biomass throughout the year. The laboratory has more than 1,000 feet of
waterfront access, natural "blue" ocean-quality seawater access, a 2500 ft 2
atmospheric test site, and more than 14,000 square feet of laboratory facilities
building space"6.
Working Waterfront: The Keys began a rapid transition from fishing to tourism
beginning in 1975; and declines in fisheries and catch volume were pronounced in
the 1980's. In 1994, the "Net Ban" further diminished the fishing industry.
Inexpensive seafood competition from foreign sources made revenues decline for
those remaining. Catch volume has declined further during the most recent decade
from 2000-2009. A transition of land uses through redevelopment has shifted
marine and waterfront related uses to seasonal housing and condominium uses.
The transition away from fishing and marine related industry is typical and well
documented in similar island communities throughout Florida. For island
communities however, this represents a shift away from the historic and cultural
aspects which gave rise to the community in the first place. In response to this
change in orientation and loss of traditional economic activity, the County
undertook to study the working waterfront in an attempt to help maintain and
preserve the culture, history and economy of the Florida Keys.
The County retained the South Florida Regional Planning Council (SFRPC) and the
Center for Urban and Environmental Solutions of Florida Atlantic University (CUES)
to develop the Monroe County Marine Management Strategic Plan (SFRPC, 2005),
which looked at the importance of working waterfronts in the Florida Keys and
provide strategies for the preservation of water dependent uses or facilities.
6 http://www.globalsecurity.org/military/facility/key_west.htm
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Monroe County Comprehensive Plan Update
Evaluation and Appraisal Report
Subsequently,the County retained the SFRPC to develop several products including
1) the Working Waterfronts Preservation Master Plan (dated April 30,2007) which
addressed loss of water dependent facilities, and included proposed Comprehensive
Plan and LDR amendments; 2) an updated marine facilities inventory and GIS Map
Atlas which added over 100 facilities to a previous inventory developed in the
1990s, and 3) the Monroe County Marina Siting Plan designed to guide marina
development through criteria-based site suitability analysis and maps of suitability
zones. The Comprehensive Plan and LDR amendments were not adopted, and the
Marina Siting Plan was not approved by the Department of Community Affairs.
However, revisions are underway to make necessary corrections to the Marina
Siting Plan which will be used for data and analysis for marina siting criteria which
will be adopted into the Comprehensive Plan and may provide for future marina
development.
Relevant excerpts from the Monroe County Marine Management Strategic Plan, as
they relate to economic development potential and opportunities are included
below for review and integration with the overall economic development strategy
presented in this section.
• From "Appendix 2, Working Waterfronts Report" of the "Monroe County Marine
Management Strategic Plan". Pages 24-26:
The redevelopment pressure on Monroe County's waterfront has been well
documented. One recent study suggested that redevelopment is accelerated in
Monroe County because the tourism and commercial fishing industries are
actually in a spatial conflict. The tourism industry's control of the waterfront has
been characterized as a natural progression of events resulting from the greater
profits generated by tourist-based operations. In fact, the commercial fisherman
were said to be despondent about the outcome, but because the political process
was often not conducive to commercial fisherman, the outcome was rarely
contested. The report questioned whether commercial fishing would be
completely abandoned as a revenue generator even though it has a long and rich
history in the Keys. Currently, Stock Island remains one of the last operational
ports for commercial fisherman in the Keys, and it too, is under enormous
pressure to redevelop into the highest and best use based on today's economic
environment.
In 2003, the Florida Keys Carrying Capacity Study was completed to assess the
ability of the Florida Keys ecosystem to withstand all impacts of additional
development. The study mapped environmentally sensitive land, as well as land
suitable for increased development. Four guiding principles for growth
management were identified: (1) to prevent encroachment into native habitat, (2)
continue and intensify existing programs dealing with environmental and quality
of life issues, (3) focus on redevelopment and infill, and (4) increase efforts to
manage ecological resources. Currently, the findings of the carrying capacity
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Monroe County Comprehensive Plan Update
Evaluation and Appraisal Report
study are being used to draft the new Monroe County Comprehensive Plan under
the Livable CommuniKeys Initiative.
In late 2004, another report concluded that there is indeed a decline in the
working waterfront and loss of public access to the waterfront. The pressures to
redevelop into private residential and other non-water dependent uses are
believed to be exacerbated by the increasing property values and associated taxes
levied on waterfront parcels. The higher taxes were also believed to reduce profits
for many marine business owners, prompting them to sell their business. It was
believed that the conversion to non-water dependent uses may help to provide a
short-term economic generator but the long-term benefits could not be
guaranteed.
Finally, a study was conducted on the impact of a post-embargo Cuba on Florida's
marine industries. The study warned that marine facilities could potentially
develop on Cuba's coast and provide direct competition to the many marinas
found in Florida and its Keys. The development of tourism in Cuba was said to be a
priority of the government that may eventually impact the future successes of
Florida's tourism industry. One example of this would be a change in the routing
of cruise ships, by-passing Key West in favor of a Cuban destination.Another is the
threat that Cuban fisherman will replace local Keys fisherman by offering the
same products at lower prices. The study encourages communities to consider the
effects of a post-embargo Cuba and to develop a strategic plan to take advantage
of opportunities and minimize negative effects of such an occurrence.
• (From Page 24 of the Monroe County Marine Management Strategic Plan):
Scenario 2
For a second scenario we assumed that approximately half of the estimated 150
marinas and boat yards in the Florida Keys would be replaced by residential
development. The additional assumptions include a loss of related jobs numbering
approximately 400, and the building of 750 residential units above and beyond
those that are otherwise projected in the baseline scenario on the sites of the
converted facilities. These residential units would accommodate an additional
1,275 residents, and these, it is assumed, would find employment in other activities
in the Florida Keys. The results suggest that there would be a long-term increase
in the gross regional product, personal income and overall employment in such a
scenario, mostly as a result of the new residents and jobs, and the income and
demand for goods and services that would result. Almost 1,500 new jobs would
generate an additional $408 million in personal income in the year 2030,
contributing to almost 2% increase in the value of output in Monroe County.
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Table 2. Scenario 2 - Loss of Madras and Boat Yards
Varliable 2005 2010 2015 2020 2025 203C
Gross County Product
(milltions) $0.0 $4,0 $18.0 $38.0 $63.0 985.0
As%of County Totall 0.OP/0 0.1% 0.5% 0.9% L4% L8%
Personal Income JimilliIians) $0.0 $Mo $7 LO $160.0 $272.0 $408.0
As%of County Totall 0.OP/0 0.4% 1.2% 2.2% 3.0% 3.8%
Tolat Employment(jobs) -1 46 304 668 1,104 1,488
As%of County Totall 0.09% 0.1% 1 0.5% 1.M L'.M 2.6%
Sot.irce:5oti'h Eonda Re icnal Maiming Council,RENJI PolicV Insiaht TO
Scenario 2 illustrates the fact that when one economic activity is replaced by
another, often the new activity competes successfully with the one it replaces.
Although some aspects of this scenario could be refined to reflect unique
characteristics of the Florida Keys (for example, the likelihood that some of the
residential units would be occupied by seasonal residents), the general outcome
of the scenario would not change significantly.
In summary, the loss of the entire commercial fishing industry and associated fish
houses without any replacement economic activities is estimated to lead to a
reduction of approximately 3% in economic output for the Florida Keys over a
25-year horizon. The conversion of half of the marinas and boat yards into
residential units, with the corresponding increase of the resident population,
could lead to almost2% in additional economic output for Monroe County.
• (From Page 26 and of the Monroe County Marine Management Strategic Plan):
Florida Keys National Marine Sanctuary Protection Act
The water surrounding the Florida Keys is home to a spectacular marine
environment, consisting of sea grass meadows, mangrove islands, and living
coral reefs. These environments are considered to be equivalent to the tropical
rain forests found in other places in the world. Also, the marine environments
found in the Keys support rich biological communities that are treasured for
their ecological, recreational, commercial, educational, historic, and esthetic
value.
While the Marine Management Strategic Plan was not adopted, the pattern of
encroachment on working waterfronts has largely stopped primarily due to the
downturn in the economy. Still, there is a recognition and commitment on the part
of the County and its citizens to help support the marine and maritime communities.
The County should continue to consider Comprehensive Plan and LDC amendment
language to incentivize property owners to retain working waterfront and uses.
This positions the Keys to take advantage of public support for the cultural and
historic value of fishing and other water related activities.
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Target Industries:
The following target industry analysis identifies industries (or types of industries)
that have the strongest potential to expand or relocate in the County and which
match the local economic profile and natural resource characteristics.
Tourism: The greatest economic opportunity throughout the Keys is to target
employment segments which are both large and fast growing. The Tourist sector
which includes hotels, recreation and eating and drinking establishments is the
largest employment sector in the County and the second fastest growing
employment sector since 1980. Despite the Tourist Development Council reporting
a 16 percent decline in visitors since 2003, tourist and related employment has
slipped by less than half that rate. The industry has been buoyed by occupancy in
the increasing numbers of seasonal housing units. As a result, the percentage
decline in the tourist industry and tourist employment is less than the recession
related decline in the County employment, despite a loss of hundreds of hotel rooms
in recent years.
Tourism in the County is event driven and highly seasonal. Expanding the duration
of the season to off peak times will utilize existing capacity and expand the revenue
potential of the industry without requiring additional peak season infrastructure.
Though off-peak season is coincident with hurricane season, visitor evacuation
times are not a factor since tourist evacuations occur prior to general population
evacuation. Expanding visitor volumes into non-peak season times should be a
policy focus to complement development of new and redevelopment of existing
hotel/motel properties.
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Target Industry - Marine Resources: Marine research, aquaculture, marine related
technology facilities and coral reef research and preservation activities should be
targeted for expansion and relocation to the Keys. It is recommended the
establishment of a local marine quality/marine research and technology task force
be created. The purpose of this entity is to bring together the civilian and military
marine research activities to the extent possible, to link the underwater parks and
preserves with sustainable coral reef research as relates to global warming and
develop marine based technologies through basic scientific research on flora and
fauna. There are numerous national and international efforts to protect and
preserve the corals. Resources such as those noted below should be taken full
advantage of with respect to funding and research opportunities and providing the
anchors to expanding local research and technology efforts:
• National Coral Reef Action Strategy
• NOAA's Coral Reef Conservation Program
• U.S. Coral Reef Task Force
• NOAA's Coral Reef Information Service(CoRIS)
• The State of Coral Reef Ecosystems of the United States and Pacific Freely
Associated States:2008
C. Policy Framework:
Policy 101.3.5: By July 2005, the County shall complete a market demand analysis
and economic assessment to determine the demand for future non-residential
development in the County and the planning sub-areas. The non-residential
development allocation and Future Land Use Map (FLUM) designations for non-
residential uses may be revised based upon the results of this study, and other
relevant policy and economic studies and data and provide the basis for preparing
specific amendments to the comprehensive plan to incorporate goals, objectives and
policies on economic development including tourism. The analysis will address
existing non-residential uses, vacancy rates, economic trends and demand for non-
residential uses by planning sub-area.
Policy 105.1.1: Monroe County shall create an economic development framework
for a sustainable visitor-based economy, not dependent on growth in the absolute
numbers of tourists that respects the unique character and outdoor recreational
opportunities available in the Florida Keys.
GOAL 212: Monroe County shall prioritize shoreline land uses and establish criteria
for shoreline development in order to preserve and enhance coastal resources and
to ensure the continued economic viability of the County. [9J-5.012(3)(a); 9J-
5.013(2)(a)]
GOAL 502: All existing and future residents and guests of Monroe County shall be
served with ports in a manner that maximizes safety, convenience, economic
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benefit, environmental compatibility and consistency with other elements of the
comprehensive plan. [9J-5.009(3)(a)]
Objective 502.1: Because of the Florida Key's unique nature as an archipelago,
Monroe County shall promote the preservation and enhancement of the existing
ports and port related activities.
Policy 502.1.1: Monroe County shall permit only port and port related land uses
within the Safe Harbor/Peninsular port area of Stock Island. Within twelve months
of the effective date of the Comprehensive Plan, Monroe County shall adopt Land
Development Code and amend the Land Use District Maps to only permit those land
uses including but not limited to commercial and industrial port dependent uses,
industry, commercial fishing, marinas, and employee housing. [9J-5.009(3)(c)5]
Policy 502.1.2: Monroe County shall permit land uses supportive, complementary
or otherwise port related nearby and adjacent to the Safe Harbor/Peninsular port
area of Stock Island. Within twelve months of the effective date of the
Comprehensive Plan, Monroe County shall adopt Land Development Code and
amend the Land Use District Maps to only permit those uses, including but not
limited to warehousing, industry, affordable housing, marine businesses, and
restaurants. [9J-5.009(3)(c)5]
Policy 502.1.3: Monroe County shall encourage and facilitate the renovation and
adaptation of existing port and related facilities to meet new maritime needs by
seeking grants from available sources, assisting private business whenever possible,
and adopting Land Development Code responsive to the unique requirements of a
port within 24 months of the effective date of the Comprehensive Plan.
D. Strategies:
• Designate economic business development locations on the Future Land Use
Map.
• Consider developing a separate Economic Development Element of the Plan.
• Encourage and incentivize green building principals in redevelopment
projects and achievement of green lodging certifications for new hotel
facilities or expansions.
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• Consider Hotel Unit Development Options:
As noted earlier, hotel unit development is also under the residential ROGO
constraint. To the degree that hotel and tourist evacuations begin 48 hours prior
to general evacuations (with a 6 hour overlap with general evacuations), hotels
and tourists do not appear to currently pose a hurricane evacuation bottleneck. To
the degree new hotel units should be encouraged, along with off season occupancy
support policy, and to the degree the number of hotel rooms and tourists are
declining, hotels are recommended to be removed from the residential ROGO
constraint and be allowed to develop or redevelop as market forces dictate. This
would allow successful properties unimpeded opportunity to improve and support
the tourist industry throughout the Keys.
- If there is no competition with allocations within Tier III designated
parcels, consider allowing the remaining allocations in a subarea to be
provided for hotel/motel development.
- The County could consider giving a percentage of the annual allocation
for transient unit development.
- The County could consider giving a percentage of the annual allocation
based upon occupancy rates of transient units (for example 5% at 55%
occupancy, 10% and 60% occupancy, 15% and 65% occupancy, and
20% at 70% or greater occupancy).
• For policy considerations, how the County counts rooms versus units may
provide some additional flexibility with respect to hotel/motel
redevelopment opportunities. For example, hotel suites with more rooms per
"unit" may allow existing hotels to add capacity without triggering other
evacuation constraints on new development -this policy direction should be
evaluated.
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• The retail and office space inventory is aged and suitable for redevelopment.
Industrial and office space generally has high vacancy rates suggesting a
higher frequency of obsolete uses on specific parcels. Because of the traffic,
utilities and environmental constraints facing Keys development and
redevelopment, a mechanism or market to pool redevelopment volumes such
as a "redevelopment capacity bank" may be a viable strategy to facilitate
redevelopment activity. This would allow for the sale of abandoned and
demolished "floor space" to be accumulated in a redevelopment bank.
Accumulated or "banked" floor space could be sold by the "redevelopment
capacity bank" at a later time, to be aggregated on sites which are better
suited and better located to accommodate commercial and tourist related
development. This would help redirect development away from sensitive or
underserved locations and encourage development in locations where
growth and development is encouraged. The generally small average square
foot building size is representative of the small scale, small business
orientation of the Keys. There are few big box stores and few very large scale
hotels. This characterizes the Keys and in particular highlights the small and
local nature of business and commerce in the Keys.
• Provide incentives for redevelopment of existing outdated hotel/tourist
facilities should be instituted. Such incentives may include the ability to
expand the number or rooms or the building footprint. Recommend some
relaxation, where appropriate, of current zoning regulations to reduce the
cost of upgrade compliance is also important and should be considered.
• Enhance waterfront with more viable uses while maintaining or
supplementing with financial support for fishing and marine industries.
• Redevelopment in concert with waterfront enhancement through the
"redevelopment capacity bank"should be offered.
• Consider a three to five year ad-valorem tax break. Property taxes are
forgiven for a limited period during the redevelopment and re-launch period
may be considered or alternatively, employ ad valorem revenues or the
incremental growth in ad valorem revenues (tax increment financing (TIF)
financing) to help finance needed infrastructure or facility upgrades to meet
or exceed current zoning and environmental standards.
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III. Land Use/Mobility
Note:Land Use/Mobility has five(5) Issue Statements
Issue Statement #1: Promote Attractive, Well-Planned Development Adjacent to
Services, and Existing Commercial "Hubs" with an Emphasis on Redevelopment.
Note: Background, Issue Analysis, Policy Framework and Strategies for Issue #1 are
divided into two categories for each - Location for Fire Stations, and Compliance with
Section 380.0552(7)6), Florida Statutes.
This topic is also addressed in the previous discussion related to "County-wide
Visioning and Planning."
As noted in the previous discussion related to the LCPs, appropriate areas for
desired development have been identified by the community. The LCPs recommend
the use of overlay districts to address the unique planning issues of each area.
Goal 105 of the Plan seeks to assure the County's pattern of future land use and
development considers smart growth initiatives, including the location of natural
resources, population, and commercial centers. The LCPs reflect that desire by
identifying potential locations for future concentration of mixed land use and
community activity.
The County's Rate of Growth ROGO and NROGO point systems are primarily based
upon the Tier designation of a parcel. Additional points (negative or positive) are
assigned based upon location (e.g. Big Pine Key); lot aggregation (density
reduction); land dedication; flood hazard area; availability of central wastewater
treatment system; payment into the land acquisition fund. For each year the
allocation request remains in the queue, the application receives a "perseverance
point" until reaching its cap. Applications for allocations which are exempt from the
cap limitation continue to accrue perseverance points. . The County's existing
policies relating to ROGO and NROGO are adequate as it relates to directing
development to appropriate areas.
The County includes the Mainland area and over 1,700 islands which lie along the
Florida Straits, dividing the Atlantic Ocean to the east from the Gulf of Mexico to the
west, and defining one edge of the Florida Bay. The Mainland Planning Area (PA)
encompasses two national landmarks: The Everglades National Park and The Big
Cypress National Preserve and accounts for approximately 85 percent or 562,149
acres of the overall County land mass. Since 99.8 percent of the Mainland PA consists
of federal lands designated as Conservation use; this analysis will focus primarily on
lands within the unincorporated Lower, Middle,and Upper PAs.
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Issue Category#1(a):Locations for Fire Stations
A. Background: The County is considering appropriate locations for fire
stations.
B. Analysis: The County is considering appropriate locations for fire stations.
The County does not have a Fire Station Location Master Plan, which would assist
the County in this effort. This type of master plan would analyze response times,
call volume and the location of existing stations. Additionally, the plan would utilize
nationally recognized standards that help determine the location and need for new
or relocation of existing stations.
C. Policy Framework:
There are no current policies pertaining to location for fire stations.
D. Strategies:
• The County should consider preparing a Fire Station Location Master Plan,
which should include a GIS data base that could be mapped on the County's
Future Land Use Map.
• The County should consider preparing a Public Safety Element of the Plan. This
element could address both fire safety and hurricane evacuation issues.
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Issue Category#1(h): Compliance with Section 380.0552(7)(j),Florida Statutes
A. Background: This State statute requires that growth be directed to areas
served by central wastewater treatment facilities.
B. Analysis: The County's policies related to ROGO and NROGO provide point
incentives for properties currently served by central wastewater.
C. Policy Framework:
Policy 101.2.14: For those ROGO applications and properties which have been
denied a ROGO award for four consecutive years and have applied for
administrative relief, which are located in a CARL project or the National Wildlife
Refuge and have received negative habitat scores under ROGO, the County or the
state shall offer to purchase the property if funding for such is available. Refusal of
the purchase offer shall not be grounds for granting a ROGO award.
D. Strategies:
• The County should consider amending Policy 101.2.14 to provide administrative
relief criteria for Tier III-A parcels served by central wastewaters stems
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Issue Statement #2: The County Should Meet or Exceed Hurricane Evacuation
Requirements as required by State law.
A. Background: One of the most hurricane vulnerable areas of the United
States is the lower southeast coast of Florida.? This area is comprised of the County
and the mainland counties of Miami-Dade, Broward, and Palm Beach (the other
three counties). U.S. 1 and Card Sound Road/CR-905 are designated as the
evacuation routes for the Keys. Historically, there has been a high frequency of
hurricanes which have affected the region. Some of the recent hurricanes are
Andrew (1992; Upper Keys); Georges (1998); Irene (1999; Middle and Lower Keys);
and Rita and Wilma (2005; throughout the keys including the Sand Keys), which are
further detailed in Chapter 3.0 Conservation and Coastal Management Element.
The DCA and the County are currently undertaking the process of updating the
evacuation model for the County Florida Keys Hurricane Evacuation Study (Miller
2001, commonly known as "The Miller Model"). Additionally, in response to the
impacts noted during the 2004 and 2005 hurricane seasons, State legislation was
passed (HB 1359 amending portions of Chapter 163, F.S.) that identified new
hurricane evacuation planning requirements and a new definition of the Coastal
High Hazard Area (CHHA). The new definition of the CHHA is "the area below the
elevation of the Category 1 storm surge line as established by a Sea, Lake and
Overland Surges from Hurricanes (SLOSH) computerized storm surge model"
(Section 163.3178(2)(h), F.S.).
Hurricane evacuation clearance time in the County, as determined by modeling
efforts, is one of the key factors used to control growth within the County, as
required by Rule 28-20.140 F.A.C. Pursuant to Rule 28-20.140, F.A.C., "For the
purposes of hurricane evacuation clearance time modeling purposes, clearance time
shall begin when the Monroe County Emergency Management Coordinator issues
the evacuation order for permanent residents for a hurricane that is classified as a
Category 3-5 wind event or Category C-E surge event. The termination point shall
be U.S. Highway One and the Florida Turnpike in Homestead/Florida City."
Clearance time, as defined by Reid Ewing's report is, "...the time required to clear
the roadways of all vehicles evacuating in response to a hurricane situation.
Clearance time begins when the first evacuating vehicle enters the road network
and ends when the last evacuating vehicle reaches its destination."8 The ability to
safely evacuate residents and visitors in advance of an approaching hurricane is
paramount. Thus, growth as managed through the Rate of Growth Ordinance
allocations of housing units, should correspond to this principle.
B. Analysis:
7 Lower SE Florida Hurricane Evacuation Study,Corps of Engineers,June 1991.
8 Ewing,R.Monroe County Hurricane Evacuation Clearance Time-Final Report,September 17,2010.
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Hurricane Modeling: Clearance time modeling, through various iterations of the
Lower Southeast Florida Hurricane Evacuation Study, prepared by Post, Buckley,
Schuh & Jernigan, Inc. (PBS&J), has been conducted for the County since the early
1990's. In 2000, pursuant to the requirements of the County's Work Program, Miller
Consulting developed The Florida Keys Hurricane Evacuation Model (the "Miller
Model") to, "...measure and analyze the unique characteristics of the Florida Keys
and to determine the clearance time required to evacuate the Florida Keys up to
Florida City, based upon existing US1 conditions."9 This model is based on the
number of dwelling units and capacity of roadway links.
In November of 2009, County staff, municipal representatives, DCA and other State
of Florida agencies attended a Hurricane Modeling Work Group meeting to develop
various assumptions to be used in the hurricane evacuation modeling. Two
assumptions used previously in the modeling effort have been substantially changed
since the initial model was developed, including the original participation rates and
flow rates, which are: 1) 70 percent participation (meaning 70 percent of the
people would evacuate) and 2) maximum FDOT capacity of roadways.
During 2010,two substantial modeling efforts were completed:
The Florida Keys Hurricane Evacuation Model: The County, with the DCA
participation, commissioned an update to the original Florida Keys Hurricane
Evacuation Study commonly known as "The Miller Model". In 2008, the DCA
retained Professor Earl Baker at Florida State University to conduct a survey of
residents in unincorporated Monroe County regarding whether or not they
would evacuate their homes if mandatory evacuation notices were issued for
Category 3-5 hurricanes. The results indicate that close to 90 percent of those
surveyed would evacuate. In June 2010, Dr. Brian Wolshon, P.E. of Louisiana
State University and Joaquin Vargas, P.E., of Traf Tech Engineering, Inc, (for
FDOT) provided revised traffic flow rates. Dr. Reid Ewing, Ph.D., Professor of
City and Metropolitan Planning at the University of Utah, conducted a modeling
effort, using the Miller Model, to accommodate phased evacuation, the FDOT 5-
Year Work Program roadway projects, as well as updated participation rate and
traffic flow rate assumptions to determine projected clearance time results.
Pursuant to Rule 28-20.140 F.A.C., the DCA shall utilize the Florida Keys
Hurricane Evacuation Model or other model acceptable to the Department to
accurately depict evacuation clearance times for the population of the Florida
Keys and to complete an analysis of the maximum build-out capacity for the
Florida Keys Area of Critical State Concern while maintaining a 24 hour
clearance time.
9 Ibid.pg.4
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The 2006 South Florida Regional Hurricane Evacuation Study: The State of
Florida Division of Emergency Management (DEM) obtained grant money
through the Federal Emergency Management Agency's (FEMA) Hazard
Mitigation Grant Program and charged the Regional Planning Councils to
conduct regional evacuation modeling and studies across the State, including
modeling and boundary mapping for the CHHA. The SFRPC, with the assistance
of the FDOT, PBS&J and Miller Consulting, Inc., finalized a regional evacuation
study that includes Miami-Dade, Broward, and Monroe Counties to model
hurricane evacuation from a regional perspective, assuming multi-county
evacuation at the same time. Although hurricanes are a prominent concern in
the study, the study includes an "all hazards" analysis to prepare for other types
of evacuations as well, such as inland flooding or wildfires.
As it pertains to Monroe County, according to the SFRPC, The South Florida
Regional Hurricane Evacuation Study is to be considered an operational tool that
highlights weaknesses which need to be addressed in the regional evacuation
system. Over 13,000 scenarios were run, identifying needs, such as traffic bottle
necks, that could be incorporated into the FDOT District Long Range
Transportation Plan. It is also an emergency management tool as it relates to
planning for the placement and distribution of equipment and personnel to
address an evacuation event. In addition, there is associated software available
that would enable emergency managers to run their own scenarios for
emergency management planning purposes.
As illustrated in Table 12, the evacuation clearance times in the updated Miller
Model range from 16 hours, 16 minutes to 27 hours, two minutes. Evacuation
clearance times in the Regional Study (Table 13) ranges from 18 hours, two
minutes to 37 hours, five minutes.
The distinctions between the models are explained in the Monroe County 30-Day
Report 2010, (Page 3) and the Rule 28-20.140 F.A.C.
The summary results of these two models are provided in Table 12 and 13, below:
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Table 12 - The Florida Keys Hurricane Evacuation Model (The Miller Model),
Summary Results
Low High Low High
Participation Participation Participation Participation
Approx. 70% Approx. Approx. 70% Approx.
90-95% 90-95%
11
1 1 16 hours 18 hours 18 hours 22 hours
• 16 minutes 50 minutes 32 minutes 6 minutes
11
1 1 18 hours 22 hours 22 hours 27 hours
1 / • 58 minutes 28 minutes 8 minutes 2 minutes
1
1 1 16 hours 16 hours 16 hours 18 hours
1 / • 16 minutes 16 minutes 16 minutes 40 minutes
1
1 1 16 hours 17 hours 17 hours 20 hours
1 / • 16 minutes 16 minutes 4 minutes 16 minutes
' 1 •
1 .
Source: Ewing, R.Monroe County Hurricane Evacuation Clearance Time-Final Report, September 17,
2010.
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Table 13 - The 2006 South Florida Regional Hurricane Evacuation Study,
Summary Results
2005 Baseline • Simultaneous
evacuation of tourist,
mobile home residents
and permanent 37.5 hours
residents
• 100% evacuation
participation rate for
all units types
2005 Baseline • Only the effect of
incorporating Phased permanent resident
Evacuation of Tourists evacuation on
and Mobile Home clearance time is
Residents measured. Tourists
(Test Scenario 1) and mobile home
residents are taken out 23.6 hours
of the evacuation in
accordance with
Monroe County's
adopted phased
evacuation plan.
• 100% evacuation
participation rate for
permanent residents
Monroe County Phase • Only permanent
Evacuation with miller resident evacuation is
Model Participation Rates measured 18.2 hours
(Test Scenario 8) • 75% evacuation
participation rate for
permanent residents
Source: 2006 South Florida Regional Hurricane Evacuation Traffic Study
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The DCA notes that for regulatory purposes, Monroe County, as an Area of Critical
State Concern, is to follow the requirements specified within the adopted Rule 28-
20.140 F.A.C.,which was adopted April 11, 2011 and is effective as of July 1, 2011.
The Rule outlines various tasks to be achieved relative to hurricane evacuation.
They are:
• By July 1, 201Z Monroe County shall enter into a memorandum of
understanding with the Department of Community Affairs, Division of
Emergency Management, Marathon, Islamorada, Key West, Key
Colony Beach, and Layton after a notice and comment period of at
least 30 days for interested parties. The memorandum of
understanding shall stipulate, based on professionally acceptable data
and analysis, the input variables and assumptions, including regional
considerations, for utilizing the Florida Keys Hurricane Evacuation
Model or other models acceptable to the Department to accurately
depict evacuation clearance times for the population of the Florida
Keys.
• By July 1, 201Z the Florida Keys Hurricane Evacuation Model shall be
run with the agreed upon variables from the memorandum of
understanding to complete an analysis of maximum build-out capacity
for the Florida Keys Area of Critical State Concern, consistent with the
requirement to maintain a 24-hour evacuation clearance time and the
Florida Keys Carrying Capacity Study constraints. This analysis shall
be prepared in coordination with the Department of Community
Affairs and each municipality in the Keys.
• By July 1, 201Z the County and the Department of Community Affairs
shall update the data for the Florida Keys Hurricane Evacuation
Model as professionally acceptable sources of information are released
(such as the Census, American Communities Survey, Bureau of
Economic and Business Research, and other studies). The County shall
also evaluate and address appropriate adjustments to the hurricane
evacuation model within each Evaluation and Appraisal Report.
• By July 1, 201Z the Department of Community Affairs shall apply the
derived clearance time to assess and determine the remaining
allocations for the Florida Keys Areas of Critical State Concern. The
Department will recommend appropriate revisions to the
Administration Commission regarding the allocation rates and
distribution of allocations to Monroe County, Marathon, Islamorada,
Key West, Layton and Key Colony Beach or identify alternative
evacuation strategies that support the 24-hour evacuation clearance
time. If necessary, the Department of Community Affairs shall work
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with each local government to amend the Comprehensive Plans to
reflect revised allocation rates and distributions or propose rule
making to the Administration Commission.
C. Policy Framework
Objective 101.2: Monroe County shall reduce hurricane evacuation clearance
times to 24 hours by the year 2010.
Objective 216.1: Monroe County shall reduce hurricane evacuation clearance time
to 24 hours by the year 2010.
Policy 216.1.1: Within one year of the effective date of this plan, Monroe County
shall adopt Land Development Regulations which establish a Permit Allocation
System for new residential development. The Permit Allocation System shall limit
the number of permits issued for new residential development to be consistent with
the Future Land Use Element in order to maintain hurricane evacuation clearance
times at a maximum of 24 hours.
Policy 216.1.8: In the event of a pending major hurricane (category 3-5) Monroe
County shall implement the following staged/phased evacuation procedures to
achieve and maintain an overall 24-hour hurricane evacuation clearance time for
the resident population.
1. Approximately 48 hours in advance of tropical storm winds, a mandatory
evacuation of non-residents, visitors, recreational vehicles (RV's), travel trailers,
live-aboards (transient and non-transient), and military personnel from the Keys
shall be initiated. State parks and campgrounds should be closed at this time or
sooner and entry into the Florida Keys by non-residents should be strictly
limited.
2. Approximately 36 hours in advance of tropical storm winds, a mandatory
evacuation of mobile home residents, special needs residents, and hospital and
nursing home patients from the Keys shall be initiated.
3. Approximately 30 hours in advance of tropical storm winds, a mandatory phased
evacuation of permanent residents by evacuation zone (described below) shall
be initiated. Existing evacuation zones are as follows:
a. Zone 1 - Key West, Stock Island and Key Haven to Boca Chica Bridge (MM 1-6)
b. Zone 2 - Boca Chica Bridge to West end of 7-mile Bridge (MM 6-40)
c. Zone 3 - West end of 7-Mile Bridge to West end of Long Boat Key Bridge (MM
40-63)
d. Zone 4-West end of Long Boat Key Bridge to CR 905 and CR 905A intersection
(MM 63-106.5)
e. Zone 5 -905A to, and including Ocean Reef(MM 106.5-126.5)
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The actual sequence of the evacuation by zones will vary depending on the
individual storm. The concepts embodied in this staged evacuation procedures
should be embodied in the appropriate County operational Emergency Management
Plans.
The evacuation plan shall be monitored and updated on an annual basis to reflect
increases, decreases and or shifts in population; particularly the resident and non-
resident populations
For the purpose of implementing Policy 216.1.8, this Policy shall not increase the
number of allocations to more than 197 residential units a year, except for
workforce housing. Any increase in the number of allocations shall be for
workforce housing only.
Policy 216.1.16: Monroe County shall coordinate with the Florida Department of
Transportation (FDOT) to ensure that U.S. 1 roadway capacity improvements
necessary to maintain hurricane evacuation clearance time at 24 hours, including
but not limited to improvements to U.S. 1 between MM 80 and MM 90, are
completed.
Policy 216.1.18: Reduced evacuation clearance times which may result from
adjustments to evacuation model variables, programs to reduce the number of
evacuating vehicles or increased roadway facility capacity, shall not be used to
increase development expectations beyond the growth allocations provided herein,
except to the extent that a hurricane evacuation clearance time of 24 hours can be
maintained. Any necessary reduction in hurricane clearance times shall be
accomplished by a plan amendment within 180 days of the re-assessment.
Policy 1301.4.9: Monroe County shall coordinate with the Florida Department of
Transportation (FDOT) to ensure that U.S. 1 roadway capacity improvements are
placed on FDOT's five year plan to reduce hurricane evacuation clearance times to
24 hours by the year 2010.
Objective 101.2: Monroe County shall reduce hurricane evacuation clearance times
to 24 hours by the year 2010.
Based upon the current policies established in the 2010 Comprehensive Plan, the
County must achieve evacuation clearance within 24 hours. Since development of
the initial Miller Model in 2000 the County amended the Plan, adding Policy 216.1.8,
which requires phased evacuation with visitors leaving 48 hours, mobile home
residents leaving 36 hours, and permanent residents leaving 30 hours in advance of
tropical storm winds in a Category 3-5 storm.
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D. Strategies:
• The County should continue to work with the municipalities and the State Land
Planning Agency for completion of tasks within Rule 28-20.140, F.A.C., related to
hurricane evacuation modeling.
• Policy 101.2.13 should be updated as appropriate to reflect revisions to Rule 28-
20, F.A.C., and the successful implementation and completion of the tasks
outlined and to include additional or revised tasks or activities as may be
necessary, such as those outlined in the Monroe County 30-Day Report, 2010,
issued by the Administration Commission.
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Issue Statement#3: Support Historic Preservation.
A. Background: Monroe County was founded in 1823. It was named for
President James Monroe. The County has many historic sites and structures which
have been preserved and protected, including many listed on the National Register
of Historic Places.
B. Analysis: The various historic resources available to, or associated with the
County are as follows:
National Register of Historic Places: The Historic Preservation Act of 1966 created
the National Register of Historic Places (the "Register") and the corresponding State
Historic Preservation Offices (SHPO). The passage of the act, which was amended in
1980 and 1992, established a broad-based historic preservation policy. The Register
is administered by the National Park Service (NPS), an agency within the United
States Department of the Interior. Its mission is, "... to coordinate and support public
and private efforts to identify, evaluate, and protect America's historic and
archeological resources." The Register reviews nominations submitted by states,
tribes, and other federal agencies and lists eligible properties; offers guidance on
evaluating, documenting, and listing different types of historic places; assists
qualified historic properties to obtain preservation benefits and incentives;
manages the National Historic Lighthouse Preservation; and sponsors the Cultural
Resources Diversity Program to diversify historic preservation and cultural
resource management. Within the County as a whole, there are currently 59 sites
and structures listed on the Register.
Florida Master Site File: The State Historic Preservation Office (SHPO) is the entity
that maintains the Florida Master Site File (FMSF) inventory for the County, and for
coordinating the review of historic resource nominations to the National Register of
Historic Places. The FMSF includes structures and archeological sites. In total, the
FMSF currently contains 391 listings of historic structures in the unincorporated
Keys, 222 of which are housing. Sites are added to the FMSF when completed site file
forms describing the characteristics and history of the site are submitted to the
Florida Department of State, Division of Historic Resources. Although the FMSF
provides an extensive inventory of historic resources, the process does not evaluate
the significance of listed sites. However, any sites which are listed or have been
determined to be eligible for listing on the National Register are noted as such in their
FMSF record. Some structures and sites listed in the FMSF have undergone further
evaluation to determine the degree of their significance as part of the nomination
process for the National Register of Historic Places. Monroe County Code of
Ordinance Article III (Sections 134-55 and 134-56) contains a procedure for
designating local historic landmarks. To date, only the three longest Overseas
Railroad Bridges: Long Key, Bahia Honda and Seven Mile railroad bridges, have been
designated as local historical landmarks.
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Tavernier Historic District: The Tavernier Historic District, as recommended by
Tavernier Livable CommuniKeys Plan (LCP), is bounded on the north by the U.S. 1,
on the west by the Tavernier Creek, on the south by the Atlantic Ocean, and on the
east by Mile Marker (MM) 92. The general location of Tavernier's local historic
district is shown on Map Series 2-1 and Map Series 2-3 of the Map Atlas. Of the 344
listings of historic structures in the unincorporated Keys, 62 are located in Tavernier
Historic District. Of the 62 structures in Tavernier, 53 are residences. On February 5,
2010, the Florida Department of State Division of Historic Resources determined that
the Tavernier Historic District is potentially eligible for listing on the National
Register of Historic Places.
Archeological Sites: Archeological files are also a curate by the State Historic
Preservation Officer (SHPO). In the County as a whole there are 649 archeological
sites e.g., vestiges of Flagler's railroad. The Florida Master Site Files also include
recorded shipwrecks. In the County as a whole there are 369 ship wreck sites. There
a number of groups which are important resources for the preservation of historic
resources in the County. The organizations include professionally staffed non-
profits, citizen membership groups, scholarly and professional associations,
government agencies, and grass-roots advocates. These groups can contribute a
variety of services and skills to the historic preservation effort including financial
support,technical assistance, increasing public awareness, and scholarly research.
C. Policy Framework:
Policy 101.4.18: The principal purpose of the Historic overlay category is to
identify existing and potential historic districts for designation, protection, and
preservation (See Goal 104 and supporting objectives and policies). Maximum
permitted densities and intensities shall be in accordance with the underlying land
use categories.
Policy 101.8.5: Substantial improvement is defined as any repair, reconstruction
or improvement of a structure, the cost of which equals or exceeds fifty percent of
the pre-destruction market value of the structure. Improvements to historic sites,
and improvements to meet health, sanitary or safety code specifications are not
considered substantial improvements.
Policy 102.4.2: The Land Authority and the Growth Management Division shall
identify the types of lands which shall be considered for acquisition. These shall
include, at a minimum:
9. lands which offer the opportunity for preservation of significant
archaeological or historical sites; and
Policy 103.2.11: Prior to issuing a building permit or development approval,
Monroe County shall require an archaeological/historical review of the proposed
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development site, performed by a qualified professional familiar with Monroe
County. The review will identify the potential development impacts on any
resources present, and will recommend mitigation measures, if any.
GOAL 104: Monroe County shall recognize, designate, protect, and preserve its
historic resources.
Objective 104.1: Monroe County shall establish and maintain a comprehensive
inventory of historic and archaeological resources, including buildings, structures,
districts, sites, objects, and significant places.
Policy 104.1.1: By January 4 1998, the Monroe County Growth Management
Division shall establish an inventory of all known historic and archaeological
resources using information provided by the Florida Master Site File and the
Archaeological and Historical Conservancy surveys of the Florida Keys.
Policy 104.1.2: Monroe County Growth Management Division shall update the
inventory of historic and archaeological resources on an annual basis as new
historic and archaeological resources are identified.
Policy 104.1.3: By January 4, 1998, Monroe County shall complete a
comprehensive historic architectural survey to inventory and document historic
architectural resources. This survey shall also identify historic housing and define
the bounds of any potential historic districts such as those preliminary identified on
Conch Key, in Islamorada, and in Marathon.
Policy 104.1.4: By January 4, 1998, the Monroe County Growth Management
Division, working with local historic preservation organizations, shall complete and
submit Master Site File forms to the State Department of Historic Resources for any
historic resources, particularly architectural resources, which are not currently
included in the Florida Master Site File.
Policy 104.1.5: By January 4, 1998, the Monroe County Growth Management
Division shall develop a computerized inventory system for compiling, updating and
accessing information pertaining to historic resources. The computerized data base
shall include descriptive information provided by the Florida Master Site File and
any National Register or Florida Keys Historic Register designations. Included as
part of this proposed system shall be an interface with the County's Geographic
Information System to provide mapped locations of sites listed on the National
Register or Florida Keys Historic Register (See Objective 104.2 and related policies).
Objective 104.2: Monroe County shall formally recognize significant historic and
archaeological resources by nominating appropriate resources on the National
Register and/or the Florida Keys Historic Register.
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Policy 104.2.1: Monroe County shall revise the Land Development Regulations to
expand and refine the program and procedures for protection of local historical,
archaeological and cultural resources. At a minimum, the Land Development
Regulations should be expanded to:
1. establish a Florida Keys Historic Register to which landmarks of local
significance are named;
2. establish a review committee and provide for an historic/archaeological
review within the development review process;
3. list the criteria and procedure for selecting a review committee;
4. specify the development review procedure;
S. specify designation criteria for sites and structures of historical,
architectural, archaeological, and cultural significance;
6. include procedures for designation of local historic districts;
7. describe the consequences of local designation, such as restrictions on
archaeological site disturbance, and on demolition or alteration of historic
structures;
8. provide procedures for enforcement;
9. specify the penalties and/or mitigation measures for non-compliance;
10. provide for the documentation and protection of sites which are not
listed as local landmarks but are discovered through the development
process or otherwise discovered; and
11. provide incentives for the preservation and protection of local landmarks.
Policy 104.2.2: By January 4, 1998, Monroe County Growth Management Division
shall prepare documentation to nominate the following resources to the Florida
Keys Historic Register of historic places:
1. all resources listed on the National Register of Historic Places which are
located in unincorporated Monroe County;
2. archaeological sites identified as worthy of preservation; and
3. Tavernier Historic District.
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Policy 104.2.3: After revisions to the land development regulations pertaining to
the Florida Keys Historic Register are adopted, the County shall contact local
historic preservation groups and encourage them to nominate eligible historic
resources to the Florida Keys Historic Register. The Monroe County Growth
Management Division shall provide information and technical assistance to
individuals and local historic preservation groups who wish to prepare nominations
to the Florida Keys Historic Register.
Policy 104.2.4: By January 4, 1998 Monroe County shall submit documentation for
nominating the following resources to the National Register of Historic Places:
1. old overseas railroad bridges identified in the AHC Architectural
Windshield Survey (Thematic Resource nomination);
2. hurricane houses and public buildings (the Islamorada Library and the
Tavernier Health Department) constructed as WPA projects in addition to
the hurricane memorial in Islamorada; and
3. archaeological sites identified in the AHC 1988 survey as eligible for
nomination to the National Register (Individual Historic Site nominations).
Policy 104.2.5: Monroe County shall nominate other historic resources to the
National Register as those resources are identified.
Objective 104.3: Monroe County shall adopt and implement measures for the
protection and preservation of historic resources.
Policy 104.3.1: January 4, 1997, Monroe County shall adopt Land Development
Regulations constituting a Historic Preservation Ordinance to provide protection for
historic resources listed on the Florida Keys Historic Register. The adopted LDRs
shall:
1. establish a historic/archaeological review board to review development
proposals which impact designated historic resources;
2. list the qualifications and selection criteria for review board members;
3. specify the criteria for local designation of historic resources guided by the
criteria for designation to the National Register;
4. incorporate the procedure for local designation as specified in Article VIII
of the Land Development Regulations (See Policy 104.2.1);
S. specify the restrictions on archaeological sites resulting from local
designation. Establish standards to address the siting and design of proposed
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developments to minimize impacts on archaeological resources, and the
proper documentation and recording of the site including retrieving of
artifacts;
6. specify the restrictions on the demolition and alteration of historic
structures resulting from local designation. Establish standards to evaluate
alterations to historic structures which are consistent with the U.S.
Department of the Interior's "Standards for Rehabilitation";
7. specify the restrictions on historic districts resulting from local
designation. Establish exterior architectural standards to evaluate
development proposals within designated historical districts with the intent
of encouraging compatibility with the architectural features of historical
significance to the particular district;
8. establish a procedure for reviewing development and redevelopment
proposals which impact designated resources;
9. specify procedures where development activities uncover unknown
archaeological resources;
10. provide procedures for enforcement and consequences of non-
compliance;
11. provide incentives such as transfer of development rights, tax credits, tax
relief, special property tax assessments, building code waivers, building
application fee exemptions, zoning variances, and FEMA exemptions to
encourage the conservation and rehabilitation of privately-owned historic
resources; and
12. specify permitting and review procedures that reconcile redevelopment
of designated historical buildings and sites with their potential non-
conforming status.
Policy 104.3.2: The County shall evaluate the possibility of incorporating effects of
proposed developments on historic resources into the Point System established by
Land Use Element Objective 101.5 and supporting policies.
Policy 104.3.3: The Land Development Regulations adopted pursuant to Policy
104.3.1 shall be drafted to meet the requirements of the Department of the
Interior's "Certified Local Government Program" which shall enable Monroe County
to qualify for State Historic Preservation Grants-in-Aid. Within six months of
adopting Land Development Regulations pursuant to Policy 104.3.1, Monroe County
shall submit the historic preservation regulations to the U.S. Department of the
Interior and the State Historic Preservation Officer for certification.
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Policy 104.3.4: Monroe County shall require that architectural guidelines be
drafted and approved by Monroe County for each Historic District listed on the
Florida Keys Historic Register. These guidelines shall be drafted by the nominating
agency, and shall be approved by a qualified historic preservation professional. The
guidelines shall be reviewed and approved by Monroe County within one year of
acceptance of the District on the Florida Keys Historic Register.
Objective 104.4: Monroe County shall adopt and implement measures for the
protection and preservation of historic resources on public lands.
Policy 104.4.1: Monroe County shall coordinate with the lessee of Pigeon Key to
ensure that the renovation and use of the County-owned island retains the historical
and architectural character of the site, and allows a reasonable amount of public
access.
Policy 104.4.2: Monroe County shall coordinate with county, State and federal
agencies to identify, monitor and protect historic resources located on public lands
(See Future Land Use Objective 102.9 and related policies).
Policy 104.4.3: Development plans on County-owned lands which contain historic
resources listed on the Florida Keys Historic Register shall be subject to review by
the historic/archaeological review board established pursuant to Policy 104.3.1(a).
Policy 104.4.4: Monroe County shall increase its participation in the resource
planning of federal and State owned parks, wildlife refuges, military installations
and other State or federal properties. Monroe County shall review resource plans,
development plans and master plans prepared for these areas, evaluate impacts on
historic resources, and submit comments to the appropriate agencies.
Policy 104.4.5: Through a lease agreement, Monroe County shall require that the
lessee of Pigeon Key or any other County-owned historical or archaeological site
designated on the Local or National Register:
1. conform, at a minimum, to the Secretary of the Interior's Standards for
Rehabilitation for any permanent or temporary development of the site; and
2. retain the historical, architectural, and/or archaeological integrity of the
site, as approved by a professional who meets the appropriate Professional
Qualifications specified in the Code of Federal Regulations, Section 61,
Number 36.
Policy 104.4.6: Before the County may sell Pigeon Key, Monroe County shall
develop and adopt architectural guidelines for this National Register Historic
District.
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Objective 104.5: Monroe County shall seek to increase public awareness and
appreciation of the historic resources and historic preservation activities in the
County.
Policy 104.5.1: Monroe County shall coordinate with the following organizations
and individuals to identify opportunities for joint public education and funding
efforts :
1. Local preservation groups in unincorporated Monroe County;
2. The Key West historic preservation planner and other historic
preservation leaders;
3. Historic Florida Keys Preservation Board;
4. Federal agencies including the National Park Service, U.S. Fish and Wildlife
Service, and NOAA;
S. State Agencies including the Florida DNR Division of Parks and Recreation,
and State Division of Historic Resources;
6. Florida Trust for Historic Preservation;
7. Monroe County School Board; and
8. Local libraries.
Policy 104.5.2: By January 4, 1997, historical and archaeological information
produced by or for the County such as the historic inventory, National Register
listings, Florida Keys Historic Register listings, archaeological surveys, and historic
architectural surveys shall be made available to the public at various locations
throughout the County including libraries, schools, senior centers, museums and
County offices.
Policy 104.5.3: By January 4, 1998, Monroe County and the Historic Florida Keys
Preservation Board shall seek funding from the Tourist Development Council to
create and implement a historic marker program and a historic map/guide to
increase public awareness and appreciation of the County's history and historic
resources.
Policy 104.5.4: By January 4, 1998, the County and the Historic Florida Keys
Preservation Board shall institute a procedure to notify property owners of
properties listed or eligible for listing on the Florida Keys Historic Register or
National Register and apprise owners of the associated benefits of listing.
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Policy 104.5.5: Monroe County shall promote public knowledge of local, state and
federal programs and incentives designed to assist owners of historic properties.
Policy 104.5.6: Monroe County shall identify community leaders with an interest in
historic preservation and provide technical assistance for the formation of new
citizen-based historic preservation groups. These groups will aid the County in
generating interest and raising funds for local historic preservation activities. Areas
which could benefit from a citizen support group include the Pigeon Key Historic
District, potential historic districts on Conch Key, in Islamorada and in Marathon.
Objective 104.6: Monroe County shall coordinate with public agencies and non-
profit organizations to protect, preserve and increase awareness of historic
resources.]
Policy 104.6.1: Monroe County shall involve local historic preservation groups in
the planning process. The County will apprise groups of historic preservation
planning efforts, request their comments and solicit their support.
Policy 104.6.2: Monroe County shall include archaeological sites identified by local
historic preservation groups on the priority list of Natural Heritage and Park
acquisition sites. (See Future Land Use Objective 102.4 and related policies.)
Policy 104.6.3: Monroe County shall encourage and facilitate acquisition of historic
sites suitable for cultural, tourism, recreation or conservation uses by federal, State
and local agencies, non-profit historic preservation groups, and non-profit
conservation organizations.
Policy 104.6.4: By January 4, 1998, the County shall identify available public and
private funding sources for historic preservation activities and submit proposals for
the following projects:
1. Perform emergency repairs and tenting for termites for historic structures
on Pigeon Key;
2. Perform structural surveys and begin renovations of significant buildings
on Pigeon Key; and
3. Develop architectural guidelines for Tavernier once a local historic district
is established.
Policy 104.6.5: By January 4, 1998, the County shall submit funding proposals for
the following historic preservation projects:
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1. Conduct a historic architectural building survey for unincorporated
Monroe County which shall identify potential historic districts and historic
housing resources;
2. Renovation and preservation of other County-owned historic resources;
and
3. Create and implement a program to promote historic resources listed on
the Florida Keys Historic Register with historic markers and accompanying
map/guide.
Policy 104.6.6: By January 4, 1998, the County shall submit funding proposals for
the following historic preservation projects:
1. Develop architectural guidelines for any historic districts listed on the
Florida Keys Historic Register;
2. Develop a computerized system for the inventory of historic resources
including all Florida Master Site File records, local and national register
status and GIS location maps.
3. Expand documentation of the Keys history through the collection of
written records and recording recollections of remaining early settlers in
written,video or audio form; and
4. Complete detailed documentation and research for remaining historic
resources which may be eligible for the Local or National Register.
GOAL 214: Monroe County shall recognize, designate, protect, and preserve its
historic resources.
Objective 214.1: Monroe County shall establish and maintain a comprehensive
inventory of historic and archaeological resources, including buildings, structures,
districts, sites, objects, and significant places. (See Future Land Use Objective 104.1
and related policies). [
Objective 214.2: Monroe County shall formally recognize significant historic and
archaeological resources by nominating appropriate resources on the National
Register and/or the Florida Keys Historic Register. (See Future Land Use Objective
104.2 and related policies).
Objective 214.3: Monroe County shall adopt and implement measures for the
protection and preservation of historic resources. (See Future Land Use Objective
104.3 and related policies).
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Objective 214.4: Monroe County shall adopt and implement measures for the
protection and preservation of historic resources on public lands. (See Future Land
Use Objective 104.4 and related policies).
Objective 214.5: Monroe County shall seek to increase public awareness and
appreciation of the historic resources and historic preservation activities in the
County. (See Future Land Use Objective 104.5 and related policies).
Objective 214.6: Monroe County shall coordinate with public agencies and non-
profit organizations to protect, preserve and increase awareness of historic
resources. (See Future Land Use Objective 104.6 and related policies).
Policy 601.3.4: Identification and improvement of historically significant housing
will be encouraged by the Planning Department through the coordination of public
information programs (See Policies 601.1.3, 601.2.2) defining benefits and
improvement funding sources.
D. Strategies:
• The County should consider evaluating its objectives and policies to assure that
historic preservation efforts such as those established through the Tavernier
Historic Overlay District are consistent and extended to other historic sites and
structures throughout the County.
• The County does not have staff or budget to support a full historic preservation
program. Therefore, the County should continue to rely on and augment, if
possible, the resources of the various groups identified in Policy 104.5.1 for
funding, initiating and performing much of the actual historic preservation work.
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Issue Statement#4:Assure Continued Public Waterfront Access;Protect and
Expand Water Dependent/Water Related Uses.
Note: This topic is also included in the Major issue 11.Economic Sustainability.
A. Background: The entire County is located within the coastal area.
Therefore, the inventory of existing land uses included in Chapter 2.0 Future Land
Use Element of the Technical Document represents the inventory of existing land
uses within the coastal area. This background addresses land use along the County's
shoreline including:
• Water-dependent and water-related uses;
• Conflicts among shoreline uses; and
• Recommended studies to address the need for water-dependent and water-
related uses and other issues related to shoreline development.
B. Analysis: Section 163.3177(6)(a)3.c., F.S. now states that future land use plans
shall include criteria to be used to encourage preservation of recreational and
commercial working waterfronts for water dependent uses in coastal communities.
Water-dependent businesses were identified by obtaining a database of business
licenses from the Monroe County Tax Collector in November 2010. Businesses with
licenses in categories related to marine businesses were compiled; these categories
included receipt numbers starting with 47140 (Fishing Diving Charter), 47142
(Marinas & Storage), 47143 (Marine Repair), 48210 (Marine Retail Sales), 53110
(Marine Wholesale Sales), and 29240 (Mobile Marine Services). The database
provided by the Monroe County Tax Collector included a designation for whether
the physical location of the business was in an incorporated city (Key West, Key
Colony Beach, Layton, Islamorada, or Marathon) or was in unincorporated Monroe
County. Because this Technical Document is for the unincorporated parts of the
County (not the incorporated areas), businesses within the incorporated cities were
deleted from the database, leaving businesses in unincorporated Monroe County
only. Based on the description of the business and the name of the business
provided in the database, each site was assigned a designation of water-dependent,
water-related, or neither. Approximately 130 businesses in unincorporated Monroe
County were identified as water-dependent. In the County, the majority of water-
dependent uses are related to commercial fishing or recreation activities. These
include, but are not limited to, businesses that involve boat rentals, marinas, and
boatyards.
The Technical Document provides a list of public and privately owned water-
dependent uses in the County. Map Series 3.6, located in the Map Atlas, depicts the
locations of the Water-Related and Water-Dependent Uses in the County.
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Existing Water-Related Uses: Water-related businesses were identified by obtaining
the same database of business licenses as described above for water-dependent
uses. Based on the description of the business and the name of the business
provided in the database, each site was assigned a designation of water-dependent,
water-related, or neither. Approximately 540 businesses in unincorporated
Monroe County were identified as water-related. The Technical Document provides
a list of water-related uses in the County. These include, but are not limited to,
businesses that involve charters, captains for hire, trailer storage, marine supplies,
marine parts, boat dealers, and marine maintenance and repair. Map Series 3.6
depicts the locations of the Water-Related and Water-Dependent Uses in the County.
Existing Water-Enhanced Uses: Some facilities do not require access to the water
and may not be water-dependent or water-related, but are enhanced by proximity
to water. These are informally referred to as "water-enhanced" uses. This term is
not identified in Florida law. A good example of a "water-enhanced" use in the Keys
is a seafood restaurant. The seafood restaurant does not require access to the
water, but the dining experience and economy is enhanced if the restaurant is on a
waterfront.
Competition for Shoreline Development Sites: This is a conflict among shoreline
uses. The diminishing supply of shoreline development sites is a major source of
conflict among competing land uses. The demand for waterfront land comes not
only from water-dependent and water-related uses described above, but from
commercial, residential, and tourism-related uses attracted to waterfront locations
by economic or aesthetic reasons rather that by functional necessity. The physical
beauty of the waters surrounding the Keys induces an overwhelming preference for
shoreline rather than inland locations. The growth and importance of the tourism
industry and the rising functional population has increased the demand for
waterfront sites for residential, recreational, and tourist-related commercial
development which are not water-dependent. In addition, public agencies have
increased efforts to acquire and preserve shoreline areas for recreation and
conservation uses. Physical characteristics and more stringent environmental
regulations further limit areas suitable for marina and docking facilities.
Despite the extensive shoreline of the Keys, the supply of shoreline development
sites cannot satisfy the demand. In this competitive market, water-
dependent/water-related uses are often supplanted by more profitable non-water-
dependent or water-related uses. Tourism, which continues to dominate the local
economy in terms of employment, depends heavily on access to the shoreline for
recreational uses. The increasing number of recreational boats has heightened the
competition for suitable marina sites between commercial fishing and recreational
marina operators.
Some of the decline in the number of commercial fishing vessels can be attributed to
less dock space, higher dockage fees, and the rising cost of living in the Keys (see
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Chapter2.0 Future Land Use Element). During the period 1980-1990, the number of
commercial fishing boats declined 6 percent while the number of recreational boats
increased 67 percent. This increased demand for recreational marinas has
squeezed the supply of commercial fishing marinas and increased the pressure to
redevelop commercial fishing marinas for recreational marina use.
Conflicts also occur where adjacent shoreline uses are incompatible. The potential
for conflict is greatest among water-dependent or water-related uses which may be
perceived as nuisance-producing (commercial fishing and support facilities, boat
storage, marine repair, marine industrial, fish houses) and uses that are reliant on
the scenic quality and amenity provided by a shoreline location (recreational,
residential, tourist-related services). The noise, smells, and visual character of some
water-dependent/water-related uses may be undesirable to adjacent tourist,
residents, and recreation users. Often, existing water-dependent/water-related
uses do not become troublesome until newer residential and commercial uses locate
on adjacent sites. The harborside area in Marathon is one of many existing locations
where conflicts result from residential uses sited adjacent to commercial fishing
uses.
Increased shoreline development, which may contribute to the destruction of
marine habitats and a decrease in fish populations, may conflict with commercial
fishing activities which are dependent on marine resources and conservation uses
which attempt to protect and preserve marine resources. Some active recreational
activities (motor boating, water-skiing, and jet-skiing) can potentially damage
marine resources valued by other recreational activities (scuba/snorkeling,
recreational fishing) as well as commercial fishing. Water-dependent recreation
uses present a different conflict. Friction between active and passive recreational
uses can occur where shared recreational facilities do not allow adequate
separation.
Working Waterfronts: This is also a conflict among shoreline uses. A "recreational
and commercial working waterfront" is defined in the Florida Waterway and
Waterfront Improvement Act, Florida Statute Sec. 342.07, as "a parcel or parcels of
real property that provide access for water-dependent commercial activities, including
hotels and motels as defined in s. 509.242(1), or provide access for the public to the
navigable waters of the state. Recreational and commercial working waterfronts
require direct access to or a location on, over, or adjacent to a navigable body of
water. The term includes water-dependent facilities that are open to the public and
offer public access by vessels to the waters of the State or that are support facilities for
recreational, commercial, research, or governmental vessels. These facilities include
public lodging establishments, docks, wharfs, lifts, wet and dry marinas, boat ramps,
boat hauling and repair facilities, commercial fishing facilities, boat construction
facilities, and other support structures over the water." Prior to 2006, hotels and
motels were not included in the definition.
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Working waterfronts are important because they contribute to the economy,
heritage, and overall quality of life and provide the coastal community character
that visitors come to the Keys to experience. In Islamorada, for example, working
waterfronts have given the area the nickname of "the sportfishing capital of the
world" and the working waterfronts attract tourists worldwide to compete in
fishing tournaments.
As the coastal population increases, there is more competition for waterfront access
and consequently, property values rise. There is increasing pressure to redevelop,
often to uses that are not water-dependent. Many traditional working waterfront
uses are squeezed out by more intense private residential and commercial
developments. For example, this has been evident on Stock Island - home to an
important community of workers and businesses that serve the local economy.
Stock Island has been facing increased pressure to redevelop many of its waterfront
industries into residential communities. Of significance is the fact that this island
contains the only industrial, deepwater port remaining in the lower Keys.
Recognizing the importance of addressing the loss of recreational and commercial
working waterfronts, the Florida Legislature passed the Florida Waterway and
Waterfront Improvement Act of 2005 to encourage preservation of working
waterfronts. One requirement of the Florida Waterway and Waterfront
Improvement Act of 2005 applicable to the County, a waterfront community, is for
the County's Comprehensive Plan to set forth regulatory incentives and criteria that
encourage the preservation of commercial and recreational working waterfronts,
including public access. Also, coastal local governments must include strategies that
will be used to preserve the recreational and commercial working waterfronts
(Chapter 163.3178(2)(g), F.S.) in the shoreline use component of the coastal
management element.
The DCA's Waterfronts Florida Program provides assistance to local governments in
revitalizing their working waterfronts through resources for planning and the
provision of intense technical assistance and training. DCA's publication Guiding the
Way to Waterfront Revitalization:Best Management Practices(DCA, 2007) is a guide
that provides an overview of what is happening at waterfronts around the United
States, presents a series of best practices, highlights lessons learned, illustrates the
key components of the Waterfronts Florida Program through case studies, and
provides information on additional working waterfronts resources such as funding
sources, planning tools, and project management. The DCA's Waterfronts Florida
Program offers help to all coastal local governments in Florida to revitalize their
working waterfronts by providing resources for planning. In addition, the Program
designates selected communities to receive technical and limited financial
assistance through the Waterfronts Florida Partnership Program. New communities
are designated as Waterfronts Florida Partnership Communities through a
competitive application process held every two years. Since 1997, a total of 23
communities have received designation as Waterfronts Florida Partnership
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Communities. Once it receives the designation, a community receives intensive
technical assistance and limited financial assistance from the DCA, resulting in a
new or refined community-designed vision plan (special area management plan) to
guide the revitalization of the community's designated waterfront area. There are
no designated Waterfronts Florida Partnership Communities in the County.
In 2006 the County retained SFRPC to develop a master plan to address the
conversion of working waterfront facilities to non-water dependent uses, and
address future marina development. SFRPC developed, in coordination with CUES,
several products for the County, including: 1) the Working Waterfronts Preservation
Master Plan (dated April 30,2007) which addressed loss of water dependent
facilities, and included proposed CDMP and LDR amendments; 2) an updated
marine facilities inventory and GIS Map Atlas which added over 100 facilities to a
previous inventory developed in the 1990s, and 3) the Monroe County Marina Siting
Plan designed to guide marina development through criteria-based site suitability
analysis and maps of suitability zones.
1) The Working Waterfronts Preservation Master Plan attempted to quantify the
loss of working waterfronts. Current and historic County property appraiser's data,
County building permit data and data from the Department of Business and
Professional Regulation were analyzed to pinpoint changes indicative of working
waterfront conversion. These data did point to broad land use changes. For
example, property codes would show that a certain property converted from
commercial to vacant. However, property codes did not provide sufficiently detailed
information to extract changes related to working waterfronts from the database
and identify the precise characteristics of these changes. Existing data sources could
not provide a sufficiently specific understanding of working waterfront conversion
because of their limited structure and content. Regardless of the limitations of the
existing datasets, traveling through the Keys, significant changes and redevelopment
of waterfront properties and marine-related uses (SFRPC, 2007) are noted.
Also addressed in the Working Waterfronts Preservation Master Plan was an
estimation of the economic importance of working waterfronts in the Monroe
County. A demographic and economic analysis showed the following under the two
scenarios tested: (1) the loss of the entire commercial fishing industry and
associated fish houses without any replacement economic activities was estimated
to lead to a reduction of approximately three percent in economic output for the
Florida Keys over a 25-year horizon; and (2) the conversion of half of the marinas
and boatyards into residential units, with the corresponding increase of the resident
population, could lead to almost two percent in additional economic output for the
County. These impacts, while modest when viewed from a strictly economic
perspective, do not consider the historical and cultural value of the "working
waterfront"in the County (SFRPC, 2007).
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Draft CDMP and LDR amendments were included in the Working Waterfronts
Preservation Master Plan,based on incentives to retain working waterfront facilities
however,those amendments were not adopted.
2) A marine facilities survey was conducted and provided for an updated Marine
Facilities Database and accompanying GIS Map Atlas (SFRPC, 2007), updating a
previous database developed in the 1990s. The inventory was prepared using the
original County database, the Florida Fish and Wildlife Research Institute (FWRI)
Marinas Database, the Florida Department of Environmental Protection (FDEP)
Marinas Database, public websites, aerial photographs, and field investigations.
The GIS Map Atlas includes a series of maps illustrating facilities in the Upper,
Middle and Lower Keys. Each facility was categorized as illustrated in the chart on
the following page.
Facility Description of Facility Characteristic
Marina (Monroe Marina means a facility for the storage (wet and dry), launching
County) and mooring of boats together with accessory retail and service
uses, including restaurants and live-aboards, charter boat and
sport diving uses, except where prohibited,but not including
docks accessory to a land-based dwelling unit limited to the use
of owners or occupants of those dwelling units
Commercial Any water-dependent facility (marina,boat yard, etc.) that
Fishing rovides support services to commercial fishing activities
Seafood Any water-dependent facility that receives fresh seafood for
Processing processing
Seafood Sales Any water-dependent facility that receives fresh seafood from
commercial fishermen for resale
Trap Yard Space for storage of lobster traps and access to load / unload
them on vessels
Charter Fishing Any water-dependent facility (marina, boat yard, etc.) that
provides support services to recreational fishing activities
(charters) and/or sales/rentals of equipment and supplies for
recreational fishing
Sport Diving Any water-dependent facility (marina,boat yard, etc.) that
provides support services to recreational diving activities
and/or sales rentals of equipment and supplies for diving
Boat Manufacturing of marine vessels
Manufacturing
Boat Sales Retail sales of marine vessels
Boat Repair Any water-dependent facility that provides maintenance
and/or repair services for marine vessels
Fuel Sales Any water-dependent facility that provides retail marine fuel
sales
Pump-out Pump-out capability associated with a qualified marine facility
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Facility Description of Facility Characteristic
Restaurant Restaurant associated with a qualified marine facility
Residential Residential housing (including single family, multi-family and
condominiums) associated with a qualified marine facility-
excludes workforce housing for the facility
Hotel/ Motel Hotel /motel associated with a qualified marine facility,
including cabins and/or rental spaces in campgrounds and
transient RV parks
Live-aboards Slips, docks or mooring sites where live-aboard vessels are
allowed to moor
Docks / Docks or broadside space available for rental (including
Broadside transient) or purchase, or owned by associated residential for
the benefit of owners
Wet Slips Wet slips available for rental or purchase, or owned by
associated residential
Moorings Mooring sites available for rental or purchase, or owned by
associated residential
Ramps One or more points of access to the water for launching
trailered vessels
Parking Parking for vehicles and/or trailers associated with a qualified
marine facility
Lifts / Hoists Equipment that can lift marine vessels to move them between
the water and dry storage or maintenance and repair facilities
Dry Storage Dry stack(inside or outside) and outside storage for marine
vessels
Source: SFRPC, 2007
The marine facility database contained information on a total of 545 facilities, of
which 260 are in unincorporated Monroe County. There are a total of 176 marinas
in unincorporated Monroe County, including 13 commercial fishing marinas and 4
boatyards:
Marine Facility Type Unincorporated Incorporated Total
Marinas 176 240 416
-Primary Use 61 97 158
-Commercial Fishing 13 18 31
-Boatyard 4 7 11
-Other 44 72 116
-Accessory Use 87 92 179
-Residential Use 28 51 79
Other 84 45 129
Total Facilities 260 285 545
Number of Wet Slips 2,730 2,380 5,110
Source: SFRPC, 2007
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The majority of the facilities in the inventory (386) include docks or some type of
broadside space, and 251 have wet slips that attach to the docks. There are 63
facilities in the inventory that offer charter boat fishing and 8 that offer sport diving
services; 59 offer fuel sales and 46 offer pump-out; 197 have ramps, 27 have lifts or
hoists, and 48 offer dry storage. Many of the facilities are associated with
residential uses such as a condominium (171) or a hotel/motel (126), and 55 offer
berthing or services for live-aboard vessels.
3) A Marina Siting Plan was developed as a guide for marina development using
criteria based suitabili , analysis. The Marina Siting Plan was prepared in April
2007 by CUES at Florida Atlantic University. The Marina Siting Plan identified
specific criteria for new or expanding marina facilities with three or more slips (as
required under Policy 212.4.1). The Plan identified areas with adequate water
depth and good flushing (requiring no new dredging) and do not have substantial
concerns with impacts to manatees, crocodiles, turtles, seagrasses, and other marine
resources. Based on the criteria, site suitability was identified. The Marina Siting
Plan provided three categories of site suitability zones defining Preferred,
Conditional, and Exclusionary locations for new or expanded marinas with three or
more slips. Site suitability was mapped, to the extent data currently exist; using
Geographic Information System (GIS) techniques and maps are included as an
appendix to the Marina Siting Plan (CUES, 2007).
The Marina Siting Plan included recommendations for the County to take to protect,
preserve, and enhance public water access and boating-related uses. . The Marina
Siting Plan was found not incompliance by the Department of Community Affairs in
2008. SFRPC was retained by the County in August of 2011 to make the necessary
revisions and update the site suitability maps. Also to be performed are a Needs
Analysis for new marinas (as required under Objective 212.4) and development of
Marina Siting Criteria (as required under Policy 212.4.1). The Needs analysis and
Marina Siting Plan will provide the data and analysis supporting Marina Siting
Criteria which should be adopted into the CDMP. The Marina Siting Criteria, and
supporting data and analysis, will direct future marina development and/or
expansion.
Existing Public Water Access Facilities: Public water access facilities are those
which allow the public access to the beach or shoreline. The County's island
configuration offers the public a variety of opportunities for physical or visual
access to the beach and shoreline. For the purposes of compiling the existing
information on public access as required by Section 163.3178 F. S. and 9J-
5.012(2)(g) F.A.C., it is necessary to establish basic definitions and criteria for the
selection of these facilities as they are not only numerous but also varied in
description throughout the County. "Public Access" is defined for the purposes of
the EAR as: 'Any water-oriented facility available to the public in general either
without fee or by use of a paid fee or by being a patron of the business that provides
the facility." The term "water-oriented" as used in this study means any facility that
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is actually on the water and controls the access to the water. The key element under
this summary is the public's access to the water. For example, under this definition,
John Pennekamp State Park would be a public access facility. It has boat ramps and
as a State Park is classified as a public facility, but a fee is charged to enter the park
and use the boat ramps. Another example would be a private business such as a
camping resort with boat ramps: the public user would have to be a patron and/or
pay a fee to use those boat ramps. This would also be a public access facility.
From these general terms,this summary has grouped the uses into six categories:
1. Marinas and Dockage;
2. Boat Ramps;
3. Fishing Piers and Boardwalks;
4. Public and Commercial Docks;
S. Beaches, Shorelines, and Waterfront Parks; and
6. Scenic Overlooks.
In total, there are 221 public and private facilities in unincorporated and
incorporated areas which provide public access to the beach or shoreline (Table
14). The locations of these facilities are shown on the Map Series 3.6, located in the
Map Atlas.
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Table 14 - Public Access Facilities Summary
/ 1
Marinas & Dockage 1 38 5 21 65
Boat Rams 3 29 9 24 65
Fishing Piers & 1 23 5 11 40
Boardwalks
Public& 1 3 0 0 4
Commercial Docks
Beaches, Shorelines, 1 22 6 15 44
Waterfront Parks
Scenic Overlooks 1 0 0 2 3
Total 8 115 25 73 221
*Includes publicly-owned facilities plus privately-owned facilities which allow public access with a
fee paid. Includes unincorporated and incorporated areas.
Each category is addressed below as to the type of facilities included and the general
physical characteristics which define them. Only those facilities that occur within
the unincorporated area of the County are reported, with the exception being any
facility, within an incorporated city, that is owned by the Federal or State
government, Monroe County, or by non-profit conservation groups such as The
Nature Conservancy and Florida Keys Land and Sea Trust. Also included would be
facilities that are owned and operated somewhat autonomously from the city
governments (examples include The Boy Scouts and The Audubon Society). These
government, non-profit, and related facilities are included because they generally
provide regional public access from incorporated as well as unincorporated areas.
Marinas and Dockage: Included in this category are facilities that are licensed as a
"marina", providing they have water access. The traditional larger boat-on-water
storage docks and associated services such as gas, repair, parts, maintenance
facilities, or utility hook-ups would be part of this end of the definition. On the
lower end, any business facility, such as a campground, which advertises a "marina"
on site, may only provide dock storage and limited utility hook-ups. These latter
"marinas" might fall under the associated item of "dockage". Here the public may
only be able to access the site by water and tie their boat up for a limited period of
time. Because there is not a clear distinction between them, marinas and dockage
are consolidated into a single category.
Boat Ramps: For this summary, if a particular site has more than one ramp, both
ramps were counted. Also ramps were counted without concern to available
parking. The condition of the boat ramp was not taken in consideration. Some
ramps are of proper concrete construction and grades and have designated trailer
parking. Other ramps are no more than areas where the public has used the land
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bank to push their boat into the water; these typically can service only small
lightweight boats. If a private business, such as a resort, advertises a boat ramp as
one of its amenities to its guests, the ramps are included within this inventory.
Privately-owned ramps that are not available to the public are not included.
Fishing Piers and Boardwalks: For fishing piers, these include docks or catwalks
where no boats would be tied up but were directly over water. In the County there
are old vehicle bridges that no longer serve vehicles but allow fishing from them. In
a private business, if "fishing" is advertised separate from the dockage of boats,
these are included in the inventory of these facilities. In the County, there are some
sites that are generally natural conservation areas where a hiking or boardwalk
system has been developed for the use of the public which winds through natural
areas including over water or marsh. These "boardwalks" may not be traditional
wood, but may be on grade trails as long as it traverses through water areas or
natural marsh or flood prone areas.
Public and Commercial Docks: This category includes those dock sites in the County
where commercial private boat charter businesses operate; and where the public, as
the clients, would have access to these docks. Also included are those sites where
the public traveling by boat could pull up and temporarily moor while using the
adjacent facilities. An example of this would be a water side restaurant where
patrons could arrive and depart by boat. This category is difficult to quantify
without a physical inventory throughout the County to field-verify the data;
however, the inventory included in this category, which is by no means exhaustive,
was researched through internet and other research sources.
Beaches. Shorelines. and Waterfront Parks: These three elements have been
grouped together because of their similar uses by the public. "Waterfront Parks" is
easily counted as they are specific in their locations and ownership. Under the term
"beaches" there is a wide range due to the character and geology of the County.
Beaches range from tens of feet to miles in length and the geology ranges from
native sands and limestone to imported sand on man-made beaches. If a private
business, such as a resort, advertised a beach as an amenity, it was counted.
"Shorelines" are difficult to define, especially since the County is almost entirely
shoreline of some type. For the purposes of counting it in this category, a
"shoreline" must be on the water, separate in ownership from any adjacent
business, and defined as a site with some boundaries; generally this means a vacant
and undeveloped parcel owned by a governmental agency.
Scenic Overlooks: This list includes sites that offer a scenic overlook but no other
facilities (marinas, boat ramps, fishing piers, boardwalks, docks, beaches, etc). For
example, some of the abandoned vehicle bridges, some of which the public can fish
from, offer scenic overlooks directly out over the water. If the public can fish from
them, then they were counted in the category of fishing piers. If not, then they are
counted as scenic overlooks. The Florida Department of Transportation offers some
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pull off areas, or wayside parks (with no other facilities) along U.S. 1, SR 905, SR
905A, SR 4, and Card Sound Road; these were counted as scenic overlooks. Because
there are many informal areas that provide scenic overlooks, the reported number
of scenic overlooks in this category is probably lower than the actual number, but a
more accurate count would require extensive field investigation.
Overseas Highwa3L While serving as the County's primary highway and major
vehicular link to the mainland, the Overseas Highway (U.S. 1) also serves as one of
the County's primary ways of providing public access to the scenery and natural
beauty of the Florida Keys. For most of its 112 miles, stretching from the Miami-
Dade County Line to Key West, U.S. 1 is within a half mile of the Atlantic Ocean,
Florida Bay, or the Gulf of Mexico. The highway includes 42 bridges which provide
panoramic views of the water . The highway has some small pull-off areas. For the
most part, these pull-offs are informal rather than developed viewing areas.
However, approaches to Bahia Honda and Long Key State Parks include designated
pull-off areas.
Old Highway and Railroad Bridges: Along some portions of U.S. 1, the old highway
and railroad bridges have been retained as fishing piers and viewing areas. These
bridges allow pedestrian access to the water. Public access points are identified in
Table 15.
Table 15 - Coastal Roads and Facilities Providing Scenic Overlooks
ill yli
Lower Matecumbe Key-Craig Key 73 Middle Beach,parking,fishing FDOT
ey
Channel Two Catwalk 73 Middle Fishing area,parking FDOT
eys
Channel Five Catwalk- Long Key 71 Midydle Fishing area,parking FDOT
Fat Deer Key 53.5-56 Middle Fishing,parking,boat FDOT
Keys ram
Old Seven Mile Bridge/ Sunset 40-47 Lower Keys Fishing,parking FDOT
Park
Spanish Harbor Wayside Park 33 Lower Keys Boat ramp. parkingFDOT
Big Pine Key- Old Wooden Bridge 30.5 Lower Keys Fishing areas,parking FDOT
Marina
Little Torch Key S.R. 4A 29 Lower Keys Boat ramp County
Kemp Channel Bride 23.5 Lower Keys Fishing area,parking FDOT
Shark Key to Saddlebunch Key 11.5-15 Lower Keys Boat ramp,parkingFDOT
Boca Chica 6.5 Lower Keys Catwalk FDOT
Source: Monroe County Growth Management Division.
Capacity of and Need for Public Access Facilities: The inventory of public water
access facilities, shown previously in Table 14 provides information on the number
and type of existing public access facilities. A capacity analysis for sandy beach, boat
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ramps, and non-boat fishing facilities determined a surplus of these facilities based
on the current functional population. There are no population-based standards to
determine the capacity and need for other water-dependent public access facilities
such as:
• public access points to the beach or shoreline through public lands;
• public access points to the beach or shoreline through private lands;
• parking facilities for beach or shoreline access;
• coastal roads and facilities providing scenic overlook;
• marinas; and
• public docks.
Due to the natural resource characteristics of the County, both the permanent
resident and seasonal population recreational preferences are for water-oriented
recreational activities such as boating, fishing, and scuba-diving to which public
access is readily available.
C. Policy Framework:
GOAL 212: Monroe County shall prioritize shoreline land uses and establish
criteria for shoreline development in order to preserve and enhance coastal
resources and to ensure the continued economic viability of the County. [9J-
5.012(3)(a); 9J-5.013(2)(a)]
Objective 212.1: By December 31, 2006, Monroe County shall develop and
implement measures for regulating shoreline uses consistent with the following
order of priorities:
a) water-dependent uses;
b) water-related uses; and
c) uses that are not dependent upon or related to shoreline access. [9J-
5.012(3)(b)3]
Policy 212.1.1: By December 31, 2003, Monroe County shall develop a Shoreline
Use Priorities Plan which shall provide for siting of water-dependent and water-
related uses consistent with the following order of priority: 1) water-dependent
uses, 2) water-related uses, and 3) uses that are not dependent upon or related to
shoreline access. The plan shall accomplish the following:
1. establish performance standards for shoreline development, consistent
with criteria for marina siting (See Objective 212.4 and related policies);
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2. identify environmentally suitable waterfront areas and recommend
strategies for reserving such areas for water-dependent and water-related
development sites consistent with estimated need;
3. analyze conflicts among existing shoreline uses and recommend strategies
for reducing or eliminating such conflicts; and
4. identify strategies for encouraging appropriate mixed use development
that includes water-dependent and water-related uses and is compatible
with existing land uses. [9J-5.012(3)(c)8]
Policy 212.1.2: By December 31, 2006, Monroe County shall:
1. adopt an amendment to the Comprehensive Plan which incorporates
recommendations of the Shoreline Use Priorities Plan; and
2. adopt Land Development Regulations which regulate existing and new
shoreline development consistent with the recommendations of the
Shoreline Use Priorities Plan. [9J-5.012(3)(c)8]
Policy 212.1.3: Monroe County shall maintain existing commercial fishing
operations as conforming uses.
Policy 212.2.3: Permitted uses and performance standards within the shoreline
setback shall be as follows:
14. Special Approvals:
a. For structures serving commercial uses, public uses, or more than three
dwelling units, the Planning Commission may approve deviations from the
above standards as a major or minor conditional use. Such approval may
include additional structures or uses provided that such approval is
consistent with any permitted uses, densities, and intensities of the land use
district, furthers the purposes of this section, is consistent with the general
standards applicable to all uses, and the proposed structures are located in a
disturbed area of an altered shoreline. Such additional uses are limited to
waterfront dining areas, pedestrian walkways, public monuments or statues,
informational kiosks, fuel or septic facilities, and water-dependent marina
uses. Any such development shall make adequate provision for a water
quality monitoring program for a period of five (5) years after the completion
of the development.
GOAL 213: Monroe County shall ensure adequate public access to the beach or
shoreline.
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Objective 213.1: Monroe County shall maintain and increase the amount of public
access to the beach or shoreline consistent with the estimated public need and
environmental constraints.
Policy 213.1.1: By December 31, 2006, Monroe County shall complete a Public
Access Plan for unincorporated Monroe County. The Public Access Plan shall
estimate the existing capacity of and need for the following types of public access
facilities:
1. public access points to the beach or shoreline through public lands;
2. public access points to the beach or shoreline through private lands;
3. parking facilities for beach or shoreline access;
4. coastal roads and facilities providing scenic overlooks;
S. marinas;
6.boat ramps;
7. public docks;
8. fishing piers; and
9.traditional shoreline fishing areas.
Policy 213.1.2: By December 31, 2006, Monroe County shall adopt Land
Development Regulations which:
1. implement recommendations of the Public Access Plan;
2. provide for the enforcement of public access to beaches renourished at
public expense by prescription, prescriptive easement, or any other legal
means;
3. provide for the enforcement of public access requirements of the Coastal
Zone Protection Act of 1985;
4. specify standards for transportation and parking facilities for beach and
shoreline access.
S. include environmental design criteria which reflect environmental
constraints.
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Policy 213.1.3: Beginning in 1998, Monroe County shall maintain or replace
physical public access to beaches and shorelines in accordance with provisions of
the appropriate park master plans and current management plans for County-
owned beaches. (See Recreation and Open Space Objectives 1201.3.7 and 1201.11
and related policies.)
Policy 213.1.4: By December 31, 2006, Monroe County shall incorporate public
access facilities into the GIS for use in future public access and shoreline planning.
D. Strategies:
• The County should evaluate and revise existing policies to provide additional
strategies for protecting and preserving water dependent uses and provide
further detail and guidance for the development of implementing land
development regulations.
• When considering land acquisition, priority should be given to lands which
enhance public access to the shoreline and water-dependent uses, such as
beaches, marinas, docks and lands containing habitat critical to, or providing
significant protection for, species designated as threatened or endangered by the
U.S. Fish and Wildlife Service and/or the State of Florida.
• The County should consider developing a definition for marinas within the
Comprehensive Plan.
• Policy 213.1.1 requires the County to prepare a "Public Access Plan" by
December 31, 2006. Although this plan has not been completed, the update of
the Technical Document has provided an inventory and estimated need for
public access points, marina, boat ramps, etc. The County should determine if
further studies are necessary.
• Although the LOS established in the July 2011 Technical Document indicates
there are enough beaches and boat ramps to serve its existing and projected
population, consideration should be given to adding new beaches and boat
ramps to the County's existing inventory.
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Issue Statement#5: Increase Availability and Use ofAlternative Modes of
Transportation.
A. Background:
Existing Public Transit Facilities and Routes: The County is currently served by two
main public transit systems:
• Miami-Dade Transit (MDT) in the northern region of the County with two
routes (Dade-Monroe Express and Card Sound Express) serving the County
from Key Largo to the City of Marathon; and
• The City of Key West Department of Transportation (KWDOT ) which
operates:
o Key West Transit (KWT) with four fixed-route bus routes serving the City
of Key West and Stock Island;
o The Lower Keys Shuttle providing service in the southern portion of the
County from the City of Marathon to the City of Key West; and
• The Key West Park-N-Ride at The Old Town Garage.
The current County-wide public transit services are presented in Map Series 5-1,
located in the Map Atlas. The locations of significant bus stops or bus run ends
located near major destinations along the transit routes are also shown in Map
Series 5-1. The stop at at U.S. 1 and Sombrero Beach Road serves as a transfer point
between the bus services provided by MDT Dade-Monroe Express Bus Route #301
and the KWDOT Lower Keys Shuttle.
Other transit related services providing limited service in the County include:
o Monroe County Transit's Paratransit Service;
o Guidance Clinic of the Middle Keys (GCMK); and
o Greyhound Bus Line.
B. Analysis:
Dade-Monroe Express - Route #301: Miami-Dade Transit has contracted with
American Coach Lines to provide bus service along the U.S. 1 corridor between
Florida City (Wal-Mart) and the City of Marathon. The bus service is known as
Dade-Monroe Express with the route designation being #301 (shown on Map Series
5-1). The County currently does not provide any funding, equipment, or personnel
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for the provision of this service. The route operates seven days a week, generally
from 5:15 a.m. to 1:20 a.m. Based on ridership data provided by MDT, the total
2009 ridership for this route was 235,167 trips.
The basic cash fare for this route is $2.35. This includes the basic MDT fare of$1.50
plus a $0.50 transfer fee charged for transferring to the Dade-Monroe Express bus
from a regular MDT bus route and $0.35 when boarding the Dade-Monroe Express.
The transfer and Express bus fees are waived for passengers using MDT's EasyCard.
Metro Bus Passes, Bus Tokens, Golden and Patriot Passports, and MDT Employee
ID's are accepted as well.
There is no transfer fee or credit agreement for transfers between the MDT route
and the Lower Keys Shuttle. Passengers must pay the full fare price of the
corresponding system.
The route's northern terminus is located at the Super Wal-Mart at NE 6th Avenue
and Lucy Street (SE 8th Street) in Florida City. The bus route operates 17 daily bus
trips (or runs) in each direction (southbound and northbound) based on scheduled
segmented route trips as shown in Table 16 and described as follows:
• Florida City - Key Largo. This bus trip segment operates from the Florida
City Wal-Mart southbound to the intersection of U.S. 1 and Second Street
(Tom Thumb Store) in Key Largo near MM 98. The bus then returns
northbound on U.S. 1 to Florida City. This segment is covered by only one of
the 17 daily Dade-Monroe Express bus runs.
• Florida City - Tavernier. This bus trip segment operates from the Florida
City Wal-Mart southbound to a point near MM 87 near the entrance to
Treasure Village. The bus then returns northbound on U.S. 1 to Florida City.
This segment is covered by three of the 17 daily Dade-Monroe Express bus
runs.
• Florida City - Islamorada. This bus trip segment operates from the Florida
City Wal-Mart southbound to a point located in the vicinity of Gulf View Drive
and White Marlin Boulevard on Islamorada near MM 74. The bus then
returns northbound on U.S. 1 to Florida City. This segment is covered by
seven of the 17 daily Dade-Monroe Express bus runs.
• Florida City - Marathon. This bus trip segment operates from the Florida
City Wal-Mart southbound to Sombrero Beach Road near MM 50. The route
ends near the Publix Supermarket. This segment is covered by six of the 17
daily Dade-Monroe Express bus runs. Transfers to and from the Lower Keys
Shuttle are made near this location.
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Within Miami-Dade County, the Dade-Monroe Express buses make regular
passenger stops at designated bus stops. However, within Monroe County,there are
no designated MDT bus stops. Passengers have to hail the buses to stop. The bus
drivers are instructed to stop only at locations or areas which are deemed to be safe
for passenger boarding or alighting and will not result in obstruction of traffic.
Some of the safe areas include a number of bus passenger shelters along the U.S. 1
corridor that have been installed by the the County's Contractor (see Table 17).
In the Upper Keys, there were previously three shelters that have been removed by
Clear Channel. Before the County has the contractor re-install them, County staff is
reviewing the locations and coordinating with FDOT. The County will eventually re-
install a shelter at the Waldorf shopping plaza in Key Largo; however, there is a
proposed pedestrian crossing to be put in nearby, If the crossing is installed, the
County plans to relocate the shelter in close proximity.
Currently, (Sept. 2010) the contractor is preparing to install two upper keys
shelters: one by Duck Key and one at approximately MM 92 (Ocean Boulevard) on
the northbound side near Mariners Hospital in Tavernier. Both of the new bus
shelters are near large employers whose employees utilize the bus service.
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Table 16 - Dade-Monroe Ex ress ioute #30Y Southbound Schedule
05:15AM 06:10AM 06:30AM 06:55AM n a
05:30AM 06:25AM 06:45AM 07:10AM n a
05:35AM 06:30AM 06:50AM n a n a
05:40AM 06:35AM 06:55AM 07:20AM 07:55AM
07:40AM 08:35AM 08:55AM 09:20AM n a
08:20AM 09:15AM 09:35AM 10:OOAM n a
10:30AM 11:25AM 11:45AM 12:10PM 12:45PM
11:30AM 12:25PM 12:45PM n a n a
01:OOPM 01:55PM 02:15PM 02:40PM 03:15PM
01:05PM 02:OOPM 02:20PM 02:45PM n a
02:OOPM 02:55PM 03:15PM 03:40PM n a
03:15PM 04:10PM 04:30PM 04:55PM 05:30PM
05:30PM 06:25PM 06:45PM 07:10PM n a
06:30PM 07:25PM 07:40PM 08:05PM 08:40PM
08:OOPM 08:55PM n a n a n a
09:OOPM 09:55PM 10:10PM 10:35PM 11:05PM
10:OOPM 10:55PM 11:10PM n a n a
I M16
n a n a 06:55AM 07:10AM 08:05AM
n a 06:55AM 07:2OAM 07:35AM 08:35AM
n a 07:10AM 07:35AM 07:50AM 08:50AM
08:05AM 08:40AM 09:05AM 09:20AM 10:15AM
n a 09:30AM 09:55AM 10:10AM 11:05AM
n/a 10:15AM 10:40AM 10:55AM 11:50AM
n a n a 12:45PM 01:OOPM 01:55PM
01:OOPM 01:35PM 02:OOPM 02:15PM 03:10PM
n a 03:30PM 04:OOPM 04:20PM 05:OOPM
n a 03:50PM 04:15PM 04:30PM 05:25PM
03:45PM 04:20PM 04:45PM 05:OOPM 05:55PM
05:30PM 06:05PM 06:30PM 06:45PM 07:40PM
n a 07:20PM 07:45PM 08:OOPM 08:55PM
n a n a n a 09:OOPM 09:55PM
09:OOPM 09:35PM 10:OOPM 10:15PM 11:10PM
n a n a 11:15PM 11:30PM 12:25AM
11:15PM 11:45PM 12:OOAM 12:25AM 01:20AM
Source: Miami-Dade Transit Note: Route schedule effective seven days per week.
Prior to May 2011, Clear Channel Outdoor, Inc. installed and maintained a number
of bus passenger shelters along U.S. 1, under contract to Monroe County. Earlier in
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2011, this company chose not to renew its contract with Monroe County, which was
set for expiration on May, 17, 2011 At the July 2011 BOCC meeting, the County
Commissioners passed a resolution to have shelters at locations that serve the
Lower Keys Shuttle managed by the City of Key West Transportation Dept. At the
same meeting, the BOCC approved having the County piggyback on the City of Key
West's contract with Anderson Outdoor Advertising to provide bus shelters in the
Upper Keys at locations served by the Dade-Monroe express service. The County
and the contractor are currently evaluating proposed locations.
Table 17 - U.S. 1 Corridor Monroe County Bus Passenger Shelters as of
September 2011
r
MM 52.3 Northbound Area to be serviced by Lower Keys Shuttle
MM 50.5 Southbound Area serviced by Lower Keys Shuttle
MM 50.2 Southbound Area serviced by Lower Keys Shuttle
MM 48 Southbound Area serviced by Lower Keys Shuttle
MM 47.4 Northbound Area serviced by Lower Keys Shuttle
MM 29.7 Northbound Area serviced by Lower Keys Shuttle
MM 28.5 Southbound Area serviced by Lower Keys Shuttle
MM 14.3 Northbound Area serviced by Lower Keys Shuttle
MM 9.4 Southbound I Area serviced by Lower Keys Shuttle
Source: Information as of Sept.2011 as provided by Monroe County Engineering Services.
Card Sound Express - Route #302: Miami-Dade Transit has contracted with JGT
Transportation, Inc. to provide bus service between Florida City (City Hall) and
Ocean Reef Club at the northern extent of Key Largo (shown on Map Series 5-1).
The bus service serves almost exclusively Ocean Reef Club employees and visitors.
The route operates along U.S. 1, Card Sound Road (County Road 905A), and State
Route 905. The County currently does not provide any funding, equipment, or
personnel for the provision of this service. The route operates seven days a week,
with six daily round trips with three trips during the morning peak period and three
during the afternoon peak period. The morning operating hours are from 5:30 a.m.
to 10:05 a.m. The afternoon operating hours are from 2:35 p.m. to 7:10 p.m. Based
on ridership data provided by MDT, the total 2009 ridership for this route is 25,555
trips.
The fare for each one-way trip on the Card Sound Express is $2.35 (cash - exact
change). Metro Bus Passes, Bus Tokens, Golden and Patriot Passports, and MDT
Employee ID's are accepted as well. A $0.50 transfer fee is charged for transferring
to the Card Sound Express bus from the mainland MDT bus. This is in addition to
the regular $1.50 MDT bus fare. Also, another $0.35 is paid when boarding the Card
Sound Express for a total cost of$2.35 for the combined trip.
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Key West Shuttle Bus System: Key West's transit system was originally established
in 1972 as the Key West Port and Transit Authority. The system, now known as Key
West Transit(KWT), is a department of the City of Key West and is managed by the
Department of Transportation, KWDOT.
As of May 2010, the KWDOT operates the Key West Shuttle Bus System serving
primarily the City of Key West Downtown area and Stock Island. The Shuttle Bus
System consists of four fixed-route bus services. All of the routes make a connection
with the Lower Keys Shuttle at Searstown. The KWDOT bus inventory consists of 17
buses that seat 23 or more people. All of the buses are diesel powered and
accessible to persons with disabilities. These buses are also used for the Lower
Keys Shuttle Bus service.
Two (2) of the bus routes, the BLUE and GREEN Routes, operate full loop routes
through Stock Island and Key West City. The BLUE AND GREEN routes operate 7-
days per week. The GREEN Route provides 11 full loop round trips per day;
whereas, the BLUE Route provides 10 full loop round trips per day. The BLUE
Route's daily operations extend from 6:10 AM to 7:54 PM; whereas, the daily
operations for the GREEN Route extend from 6:00 AM to 10:09 PM. Service
headways on the Green Route range from 84 minutes to 98 minutes. Headways on
the Blue Route range from 78 to 95 minutes.
Figure 10 presents the current route map (as of March 15, 2010) for the BLUE and
GREEN Routes.
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r
sU
� „re '(/Hi��f�fmmmmmmmmmm� "
6;
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IS
wl(v NE
h �
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,Wig✓o � � ''°o
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Source:The City of Key West Transportation Department website
Figure 10 - BLUE and GREEN Shuttle Bus Routes, Current Route Map
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The other two (2) routes, the RED and ORANGE Routes, provide connections or
transfer opportunities at the three (3) main shopping centers in Key West. Figure
11 presents the current route map (as of March 15, 2010) for the ORANGE and RED
Routes.
/
t i)
fl
if
'if
� 1
k jif
d
a ?J,{ -
a
...........
*r A ...........
J", V
..........
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Source:The City of Key West Transportation Department website
Figure 11 - ORANGE and RED Shuttle Bus Routes, Current Route Map
The ORANGE Route serves the Old Town Key West areas to the shopping centers
while the RED Route serves the Stock Island communities with service to the
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shopping centers. The ORANGE Route does not travel beyond the shopping center
areas to Stock Island; whereas, the RED Route does not service Old Town,
Downtown Key West area. Both the ORANGE and RED routes provide ten (10) trips
each per day as corridor service routes.
The ORANGE and RED Routes operate 6-days per week. The Orange Route's daily
operations extend from 6:15 AM to 6:18 PM; whereas, the daily operations for the
GREEN Route extend from 6:00 AM to 10:09 PM. The service headways on the
ORANGE Route range from 73 minutes to 88 minutes; whereas, headways on the
RED Route range from 72 to 87 minutes.
The basic full fare for a one-way trip on the City route buses is $2.00. Reduced
($1.00) and senior citizen fares ($0.50) are available, as well as, 7-day ($3.75 to
$8.00) and 31-day fares $15.00 to $25.00). Reduced monthly fares are offered to
seniors, students, military and the disabled for $15.00. Children five and under may
ride for free with a paying passenger. The City of Key West operates a website that
provides up-to-date information on the City Shuttle schedules and routes.
KWDOT 's "BOB", Bikes On Buses Program, allows customers to take a bicycle on
any of the Key West buses by securing it onto a bicycle rack, attached to the front of
every city bus.
Based on ridership data from the KWDOT, the 12-month ridership from January
2009 through December 2009 is 325,014 passenger trips.
Lower Keys Shuttle Service: The KWDOT also operates the Lower Keys Shuttle
along U.S. 1 between Key West and Marathon (shown on Map Series 5-1). The
KWDOT obtained Federal Transit Administration (FTA) and FDOT financial
assistance for the implementation of this shuttle bus service. This route connects
with the Dade-Monroe Express (Route #301) in Marathon to provide bus service
from Key West to Florida City (mainland Miami). Scheduled stops are made at
various points throughout the length of the route including Key West, Boca Chica,
Big Coppitt, Bay Point, Sugarloaf, Cudjoe Key, Summerland Key, Big Pine Key, and
Marathon.
The Lower Keys Shuttle operates seven days a week, from 5:40 a.m. to 11:55 p.m.
(PINK - Key West Based) and 6:00 a.m. to 11:36 p.m. (LIME - Marathon Based). A
total of 9 round trip runs are scheduled during the day. Headways range from 58
minutes to 200 minutes on the northbound trajectory and from 62 minutes to 85
minutes on the southbound trajectory. Both Lower Keys Shuttles now extend into
Old town/Downtown Key West and up to 109th Street between Walgreens and
Office Depot in Marathon.
The Lower Keys Service fares are as follows:
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2011 Lower Keys Service Fares
Fare Type Full Reduced Senior
One way $4.00 $2.00 $1.50
7 Day Pass $25.00 $15.00 $15.00
31 Day Pass $75.00 $45.00 $45.00
Reduced fares require proper ID and applies to students under 21, the disabled,
active and retired military, and seniors aged 60 years or more. Children aged five
(5) years and under may ride for free with a paying passenger.
The Lower Keys Shuttle provides daily mass transit, fixed route service between Key
West and Marathon daily, with forty-two (42) service points along both sides of U.S.
1. Eighteen (18) of these service points are solar powered bus shelters provided via
contract with Anderson Advertising and the City of Key West. Another seven (7)
electric powered shelters within the Lower Keys Shuttle area are provided by
Monroe County. Many of the remaining service points consist of simple bus stop
signs and posts with eight (8) locations consisting of solar powered safety lighting
and beacon light I-Stop units.
Table 18 presents the location of the KWDOT owned and installed bus shelters (all
shelters from Marathon to KW are now installed and included in the City of Key
West bus shelter contract. At the July 2011 BOCC meeting, the County passed a
resolution to have the Key West Transportation Department handle all of the lower
keys shuttle shelters). The local agencies plan to install 20 more shelters in the
Lower Keys area within the next two (2) year period. This process will include the
reevaluation and re-issuing of the service contracts,where applicable.
The Lower Keys Shuttle does not provide bicycle racks. However, folding portable
bicycles are allowed on the Lower Keys Shuttle. These compact bikes can be folded
and carried alongside a rider without taking up precious space on the sometimes
busy shuttle.
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Table 18 - Lower Keys Shuttle Bus Stop Shelters
r r ' '
1 Sears Northside Drive 3.0
2 Stock Island U.S. 1 & 3rd Street n a
3 Bay Point Bab 's Coffee 15.0
F Saddlebunch Bluewater Drive 14.3
4 Sugarloaf Across from Mangrove Mama's 16.0
5 Cud'oe Key Evie's Subs 22.5
A Little Torch (Dolphin Marina MC 28.5
6 Big Pine Key NAPA) n a
7 Big Pine Key Industrial Road 33.5
8 Bahia Honda Park Entrance n a
B Marathon 11th St. MC 48.0
9 Marathon Park&FKAA 49.0
10 Marathon (Kmart&Publix 50.0
r r MR
11 Marathon (FHP) 49.0
C Marathon USCG MC 48.0
12 Bahia Honda Across Entrance n a
13 Big Pine Key Dions 33.5
14 Big Pine Key CVS n a
D Big Pine Key Medical Center MC 29.7
15 Summerland Across Bank n a
16 Summerland Across Mote n a
17 Cud'oe Key Coco's 21.5
18 Sugarloaf School 17.0
E Rockland Key Calle Uno MC 9.4
Notes and Sources:
Shelters 1-18: City of Key West DOT(under contract with Anderson Advertising).
Shelters A-F: Monroe County.
Bus Ridership and System Performance: Table 19 presents annual ridership and
performance indicators for the KWDOT service between 2003 and 2008. The
ridership and operational data were obtained from the Key West, Florida, Transit
Development Plan (TDP), 2010-2019 report dated January 2010. The TDP was
prepared as a requirement by FDOT for receipt of Public Transit Block Grants
(PTBG). Grant recipients must submit a 10-year TDP with yearly updates.
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The TDP is a planning tool used to identify future needs for transit service, define
the community's goals and develop a program of improvements. The submission
cycle as defined by Florida Statutes is to perform a major update to the TDP every
fifth year. The last major update for the KWDOT was performed in 2005. The 2010
TDP develops new goals and objectives and other relevant data to reflect current
year through 2019-2020. The performance indicators are used to present the data
that are reported in the National Transit Database (NTD) reports and relate to
overall system performance.
Table 19 - KWDOT Transit Performance Indicators
" d " " I " " t
Passenger 310,736 319,088 519,673 505,885 515,729 66%
Trips
Revenue 258,425 358,728 742,869 764,303 795,749 208%
Miles
Total
Operating $1,143 $1,443 $3,212 $3,218 $3,323 191%
Expenses
000's
Operating
Revenue $272 $347 $932 $974 $1,418 421%
000's
Vehicles/
Maximum 6 6 8 8 8/9 33%
Service
Net
Expenses/ $3.67 $4.41 $4.39 $4.44 $3.69 0.5%
Passenger
Source: Key West,Florida,Transit Development Plan(TDP),2010-2019,January 2010
Annual ridership on the KWDOT system increased 66 percent between 2003 and
2008. While expenses and revenue saw significant increases since 2003-2004, by
2007-2008 the system was able to reduce expenses per passenger trips to about the
same level as it was in 2003-2004. ($3.69 per passenger trip in 2007-2008 versus
$3.67 per passenger trips in 2003-2004.)
During the time period indicated, the system underwent several service related
changes. The Lower Keys Shuttle was added in 2005-2006 and several changes in
route structures were made. In addition, prior to November 2009, the system
operated six city routes (Blue, Green, Orange, Red, Gold, and Purple) instead of the
present four routes. The information in Table 19 also includes data from the Park-
N-Ride Garage Shuttle which is no longer in service.
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Based on latest ridership data from the KWDOT, the 12-month ridership from
October 2008 through September 2009 is estimated at 503,115. The Lower Keys
Shuttle accounts for approximately 109,087 to 116,070 annual passenger trips.
Key West Transit Bus Ridership Forecasts: Table 20 presents the 2010-2020
forecasted KWDOT annual transit ridership as developed for the 2010 TDP. The
forecasts are based on the maintenance of the current four city routes and the
Lower Keys Shuttle with expected budget restrictions and service reductions.
Overall annual ridership is expected to increase from approximately 396,390 in
2009 to 451,130 in 2020, an increase of 13.8 percent.
Public Transit Level of Service: Transportation services between communities
can be just as important as services within communities, especially for areas where
medical, educational, and other services may not be readily available. Intercity
transportation services, whether bus, train, or ferry, help to fill these mobility needs
by linking smaller communities to larger communities and to other transportation
models.
The LOS thresholds for intercity scheduled transit services are presented in Table
21. The corresponding LOS for each of the transit routes are summarized in Table
22 and Map Series 5-2, located in the Map Atlas.
As shown in the table, the Dade-Monroe Express #301, which serves the northern
region of the County, has varying LOS per segment based on the number of buses
serving each segment. The segments between Florida City and Tavernier have LOS
of A. The segment between Tavernier and Islamorada has a LOS of B; whereas, the
segment to Marathon has a LOS of D. The Lower Keys Shuttle has an intercity bus
LOS of B.
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Table 20 - KWDOT Transit Annual Ridershi Forecasts, 2010 - 2020
°
C
Base 82,490 82,125 47,450 68,255 116,070 396,390
2009
2010 100,451 88,225 53,199 46,260 120,276 408,411
2011 101,455 89,107 53,731 46,723 121,479 412,495
2012 102,470 89,998 54,268 47,190 122,694 416,620
2013 103,494 90,898 54,811 47,662 123,921 420,786
2014 104,529 91,807 55,359 48,139 125,160 424,994
2015 105,575 92,725 55,913 48,620 126,412 429,245
2016 106,630 93,652 56,472 49,106 127,676 433,536
2017 107,697 94,589 57,037 49,597 128,953 437,873
2018 108,774 95,535 57,607 50,093 130,242 442,251
2019 109,861 96,490 58,183 50,594 131,545 446,673
2020 110,960 97,455 58,765 51,100 132,850 451,130
Source: Key West,Florida,Transit Development Plan(TDP),2010-2019,January 2010
Table 21 - Intercity Transit Level of Service Thresholds
r ° ME
A >15 Numerous trips throughout the day
B 12-15 Midday and frequentpeak-hour services
C 8-11 Midday or frequentpeak-hour services
D 4-7 Minimum service to provide choice of travel times
E 2-3 Round trip in one day is possible
F 0-1 Round trip in one day is not possible
Source: 2000 Highway Capacity Manual (HCM),Exhibit 27-3
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Table 22 - Monroe County Intercity(MDT and KWDOT) Transit Level of
Service
EEO ® 1 e
1 1
Florida City Key Largo 17 A
MM 98
Dade-Monroe Key Largo Tavernier 16 A
Express 235,1673 MM 98 MM 87
#301 Tavernier Islamorada 13 B
MM 87 MM 74
Islamorada Marathon 6 D
MM 74 MM 50
Card Sound
Express 25,5553 Florida City Key Largo/ 6 D
#302 Ocean Reef
Lower Keys 103,8644 Key West Marathon 12 B
Shuttle
Sources: Miami-Dade Transit and City of Key West Department of Transportation.
Notes:
1. Bus round trips based on current schedule as provided by Miami-Dade Transit.
2. Level of Service determined by Exhibit 27-3 from the Highway Capacity Manual
2000.
3. 2009 Ridership data from January 2009 through December 2009.Source: Miami-
Dade Transit.
4. Ridership total for the 12-month period from January 2009 to December 2009.
Monroe County Transit's Paratransit Service: The County operates a county-wide
paratransit service known as Monroe County Transit (MCT). As noted on the MCT
website, this service provides mobility for those with special transportation needs.
In Section 427.011 (9), F.S„ "paratransit" is defined as those elements of public
transit which provide service between specific origins and destinations selected by
the individual user with such service being provided at a time that is agreed upon by
the user and provider of the service. Paratransit can be provided by taxis,
limousines, "dial-a-ride", buses and other demand-responsive operations that are
characterized by their non-scheduled non-fixed route nature.
The MCT Paratransit service is a door-to-door service designed for people who need
transportation. Anyone can ride, especially the elderly and/or disabled individuals
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who are unable to access regular fixed route or commuter bus service. The mission
statement of the MCT "is to operate a safe, dependable and effective paratransit
network that enables Monroe County's elderly, disabled and transportation
disadvantaged citizens the mobility necessary to improve their quality of life and
provide the means of remaining independent allowing them to have useful and
productive lives."
MCT provides paratransit transportation within the Florida Keys, available between
MM 0 in Key West through MM 113 in Key Largo as well as Ocean Reef. MCT offers
services Monday through Friday (excluding County holidays), from 8:00 a.m. to 5:00
p.m. Each one-way trip is $2.00.
As a demand-response operation, potential passengers must call the main office to
register and schedule a pick up. An advance reservation of at least 24-hours is
required. On the dates of the reserved trips, the bus operators pick up the
passengers at their addresses and transport them to their destinations.
The MCT meets the requirements of the Americans with Disabilities Act (ADA) and
provides door-to-door service to those individuals who qualify based on the
following criteria:
• Those who because of visual, physical or mental impairment cannot
recognize destinations or cope with the physical requirements of the regular
bus service.
• Those who would use regular bus service if the buses could accommodate
their necessary mobility aids such as wheelchairs, scooters, etc.
• Those who have impairments or impairment-related conditions, which
prevent them from getting to or waiting at a regular bus stop.
Generally, the Key West residents will utilize the fixed route, City of Key West bus
system, if they live within 3/4 of a mile to the fixed route system.
Service frequency for paratransit service is called access time, and is defined as the
minimum amount of time from when a passenger requests service to the time a pick
up can be guaranteed to occur. Table 23 provides the LOS thresholds for
paratransit service based on service frequency. Because the service requires one
day's advance notice for reserving and obtaining a ride, the MCT is considered to be
operating at LOS E. Higher LOS would require service to be provided the day it is
requested.
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Table 23 - Service Frequency Level of Service (LOS) for Paratransit Service
d
A 0.0 - 0.5 Fairly prompt response
B >0.5 - 1.0 Acceptable response
C >1.0 - 2.0 Tolerable response
D >2.0 - 4.0 Poor response, may require advance planning
E >4.0 - 24.0 Requires advance planning
F >24.0 Service not offered every weekday or at all
Source: 2000 Highway Capacity Manual(HCM),Exhibit 27-2
Monroe County Transportation Disadvantaged Service: Public transportation
within Monroe County is primarily limited to Key West with extended service to the
Lower Keys, which contains less than half the county's population. Therefore, more
than half of Monroe County's residents have no access to structured public
transportation services. Lack of access to public transportation for majority of the
residents coupled with various other local challenges creates a great need for
Transportation Disadvantaged services in the area.
Chapter 427, F.S. establishes the Florida Commission for the Transportation
Disadvantaged (CTD) and directs the CTD to "accomplish the coordination of
transportation services provided to the transportation disadvantaged". In
accomplishing its purpose, the CTD approves a Community Transportation
Coordinator (CTC) for each county of the state which is charged with arranging cost-
effective, efficient, unduplicated, and unfragmented transportation disadvantaged
services within its respective service area. Additionally, a designated official
planning agency (DOPA) is approved by the CTD and charged with creating the
Local Coordinating Board (LCB) and providing technical assistance to the LCB. The
LCB acts as an advisory board and as such provides guidance, monitors, evaluates
and supports the transportation activities of the CTC.
The Health Council of South Florida has served as DOPA since the spring of 1993
and created the Monroe County LCB the same year. The Guidance/Care Center, Inc.
(GCC), formerly Guidance Clinic of the Middle Keys - GCMK, has served as Monroe
County's CTC since the fall of 1997 and provides majority of TD trips in Monroe
County. The remainder of trips are offered by six (6) contracted providers together
with incidental use of taxicabs.
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As of fiscal year 2009-2010, the CTC has a reported annual operating expense of
over $2 million funded by State and county grants, client fees, third party payers and
grants. The CTC and its coordinated contractors have over one hundred employees
including approximately 84 full and part-time drivers.
The GCC is a private non-profit organization founded in 1973 in response to the
need identified by community leaders for a community facility to provide mental
health services to local residents. Since then it has since then it has grown into a
multi-service community mental health center providing inpatient, outpatient,
residential, day treatment and case management services as well as transportation
services. It has a staff of over 100, of these, 5 are full or part-time drivers.
The GCC as CTC currently contracts with the following organizations:
• The Florida Keys Children's Shelter in Tavernier serves at-risk children and
families and offers a community-based counseling program. It contracts with
the CTC and provides sponsored trips to the residents of its facility. The
address is 73 High Point Road, Tavernier, Florida 33070. Hours of operation:
24 hours a day.
• Florida Keys Outreach Coalition for the Homeless in Key West provides
homeless outreach and residential services. It utilizes TD funds to purchase
monthly bus passes on Key West transit for residents of the Coalition's
transitional residential facility. The address is 2221 Patterson Road, Key
West, Florida 33040. Hours of operation: Monday through Friday from 8:30
a.m. to 5:30 p.m.
• The Monroe Association for ReMARCable Citizens, Inc. (MARC) is a non-profit
agency that serves adult clients within Monroe County who have
developmental disabilities. The address is 1401 Seminary Street, Key West,
FL, Florida 33040. Hours of operation: Monday through Friday from 8:00
a.m. to 4:00 p.m.
• Center for Independent Living of the Keys is a non-profit organization that
provides supportive services to the elderly and disabled. The address is
103400 Overseas Highway, Suite 243, Key Largo, Florida 33036.
• Samuel's House is a safe haven for women, and women with children, for up
to 90 days to allow them a new beginning. Any woman in need, of any age,
anywhere in Monroe County is welcomed. The address is 1614 Truesdell
Court, Key West, FL 33040. Hours of operations: Monday through Friday
from 9:00 a.m.to 5:00 p.m.
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• US Fellowship of Florida, Inc. is an agency that offers residential housing for
adults with mental illness and provides non-sponsored trips for residents of
their group home seven days a week. The address is 1320 Coco Plum Drive,
Marathon, Florida 33050. Hours of operation: Monday through Friday from
8:00 a.m.to 11:00 p.m.
• The Monroe County Social Services Transportation provides sponsored trips
throughout the keys with vans located in Key West, Big Pine, Marathon and
Tavernier. Residents are transported within these areas, but not between
them. The address is 1100 Simonton Street, Room 1-181, Key West, Florida
33040. Hours of operation: Monday through Friday from 8:00 a.m. to 5:00
p.m. (Transportation and Reservations can be made between these hours).
The GCC provides scheduled weekday services throughout the Keys as
demonstrated in Table 24.
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Table 24 - The Guidance/Care Center, Inc. Transportation Schedule
Monday
Middle to Upper Keys 6:30 am 8:30 am
(Up to Key Largo) 2:30 pm 4:00 pm
6:30 am 8:30 am
Middle to Lower Keys 10:30 am 12:00 pm
2:30 pm 4:00 pm
Tuesday
Middle to Upper Keys 9:30 am 10:00 am
(Marathon to Marathon) 2:30 pm 4:00 pm
Middle to Lower Keys 6:30 am 8:30 am
2:30 pm 4:00 pm
Wednesday
Middle to Upper Keys 6:30 am 8:30 am
(Up to Key Largo) 2:30 pm 4:00 pm
6:30 am 8:30 am
Middle to Lower Keys 10:30 am 12:00 pm
2:30 pm 4:00 pm
Thursday
Middle to Upper Keys 9:30 am 10:00 am
(Marathon to Marathon) 2:30 pm 4:00 pm
Middle to Lower Keys 6:30 am 8:30 am
2:30 pm 4:00 pm
Friday
Middle to Upper Keys 6:30 am 8:30 am
(Up to Key Largo) 2:30 pm 4:00 pm
6:30 am 8:30 am
Middle to Lower Keys 10:30 am 12:00 pm
2:30 pm 4:00 pm
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The set stops for the GCC Transportation Services between Marathon and Key West
are located at:
• Guidance/Care-Center- 3000 41St Street, Ocean, Marathon;
• Peacock Apartments - 1624 Spalding Court, Key West;
• Dion's Quick Mart- 30989 Avenue A, Big Pine Key;
• Veterans'Administration Clinic - 1300 Douglas Circle, Key West;
• Burger King- 5400 Overseas Highway, Stock Island;
• Near former Waterfront Market-William and Caroline Streets;
• Corner of Truman and White Streets;
• St. Clare's Clinic - 2700 Flagler Avenue, Key West; and
• K Mart(Sears town) - 2928 North Roosevelt Boulevard, Key West.
Between Marathon and Key Largo,the set stops are:
• Islamorada Library- 81830 Overseas Highway, Islamorada,
• San Pedro's Church - MM 89, and
• Guidance/Care-Center- 3000 41St Street, Ocean, Marathon.
The current fare structure (as of March 2011) is presented in Table 25.
Table 25 - Middle Keys Transportation Fares Per One-Way Trip
1 1 1I / 1 / 1 I
Big Pine $1.00 Big Co itt $1.00
Summerland Key $2.00 Sugarloaf Key $2.00
Sugarloaf Key Cud'oe Key) $3.00 Summerland Key $3.00
Big Co itt $4.00 Big Pine Key $4.00
Ke West $5.00 Marathon $5.00
Grass Key $1.00 Tavernier $1.00
Long Key $2.00 Islamorada $2.00
Islamorada $3.00 Long Key $3.00
Tavernier $4.00 Grass Key $4.00
Key Largo $5.00 Marathon $5.00
During the 2009-2010 fiscal year,the CTC System operated a total of 52 vehicles, of
which 44 percent were wheelchair accessible.
The annual operating report for 2009-2010 for the Monroe County Transportation
Disadvantaged program revealed a 35 percent increase in unduplicated riders with
approximately 700 more riders than in the previous year, indicative of a higher level
of need in the county. The Coordinated System provided a total of 107,517 trips up
from 104,587 in the previous year.9 Table 26 illustrates Monroe County TD
9 Source: FLCTD Annual Operations Report,2010.
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population projections from 2008 through 2012. During fiscal year 2006-2007,
about 40 percent of the county's population (35,509) was designated Potential TD
population while an additional 7,472 were designated TD population. Based on the
aforementioned Monroe County TD Service Plan 2008, at the end of fiscal year
2006-2007, Monroe County had invested over $2.5 million to provide 119,987 trips
to about 2000 TD persons, representing approximately 6 percent of the county's
Potential TD population. Currently, the funding allocated to serve the TD population
is not sufficient to meet the existing demand for services. Additionally, the steady
rise in TD populations demonstrates a need for concurrent increases in funding and
other resources to meet the rising demand.
Table 26 - 5 Year Forecast of TD Population in Monroe County, 2008-2012
Potential TD Population 35,509 36,354 37,225 38,123 39,050
TD Population 7,617 7,765 7,919 8,075 8,237
Source: Center for Urban Transportation Research,University of South Florida,2008
Greyhound Bus Line: Greyhound Bus Line provides the County with both intercity
and interstate service and connectivity. The Greyhound terminal is located at 3535
South Roosevelt Boulevard, Key West.
Greyhound has two daily scheduled services each way. The service to and from
Miami includes stops at Key Largo, Islamorada, Marathon, Big Pine Key and Key
West. The two southbound trips from Miami depart at 11:10 a.m. and 5:15 p.m. The
two daily northbound trips depart Key West at 8:15 a.m. and 6:00 p.m.
Major Public Transit Trip Generators and Attractors: The major public transit trip
generators and attractors are graphically depicted on Map Series 5-3, located in the
Map Atlas. Their location is denoted by MM in the County, where appropriate. They
generally include commercial, government, residential, medical, education, and
State parks sites within the County. The existing characteristics of these sites
depend upon the type of use. Trips generated by schools include peak traffic
demand in the morning (when pupils and staff arrive) and afternoons (when pupils
and staff depart). During the morning peak period,traffic associated with the school
coincides with the typical morning home-to-work commute. However, the peak
afternoon traffic period associated with schools occurs earlier than the typical
work-to-home commute.
The trip generation characteristics of governmental facilities, such as the
Government Centers and the U.S. Post Office, are influenced by both the facilities'
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employees and customers. Most employees arrive in the morning and leave in the
evening. Peak hours for retail customers and restaurants may vary depending upon
the hours of operation and the clientele to which the service is oriented.
Currently, there are no deficiencies identified in the County concerning terminals,
other connections, HOV lanes, or Park-and-Ride facilities.
C. Policy Framework:
Policy 215.1.1: Monroe County shall adopt level of service standards (LOS) for the
following public facility types required by Chapter 9J-5, F.A.C: roads, sanitary sewer,
solid waste, drainage, potable water, parks and recreation, and mass transit.
GOAL 401: To provide a coordinated surface transportation system for
transportation disadvantaged people within Monroe County and to encourage such
a system for all residents and guests.
Objective 401.1: Monroe County shall encourage the provision of transit service
for all residents to major trip generators.
Policy 401.1.1: By December 31, 2006, Monroe County shall adopt Land
Development Regulations requiring retail shopping facilities, offices and similar
uses generating over two thousand (2,000) trips per day be built to accommodate
mass transit by being designed to include such features as adequate turning radii for
large vehicles, direct access to sheltered areas with seating that can serve as a bus
stop and pedestrian access to adjacent properties.
Policy 401.1.2: Within twelve (12) months of the effective date of the
Comprehensive Plan, Monroe County shall adopt land development regulations that
favor the clustering of major trip generators and transit oriented uses.
Policy 401.1.3: Within twelve (12) months of the effective date of the
Comprehensive Plan, Monroe County shall adopt land development regulations that
encourage all developers to assist the transition to transit by such efforts as
providing car pools,transit facilities, and pedestrian/bicycle paths.
Policy 401.1.4: Monroe County shall phase the development of complete transit
services, and as an interim measure shall seek the provision of interim measures
such as car pool services to the service population, major employers, dense
residential areas, resort guests, and tourists.
Policy 401.1.5: Monroe County shall continue to seek funds for the transportation
disadvantaged and other transit and paratransit operations from all applicable
Federal, State, and other sources and shall continue to provide gas tax revenues to
public transit and/or paratransit services.
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Policy 401.1.6: Monroe County shall allocate funds collected from highway impact
fees to capital expansions of public transit systems that relieve highway traffic or
reduce the demand for additional highway capacity.
Policy 401.1.7: Monroe County shall encourage the operation of public and private
transit and paratransit services and shall seek legislation to exempt transit facilities
such as terminals and repair shops from the U.S. 1 concurrency requirements.
Policy 401.1.8: Due to the very narrow geography of the Florida Keys, limited U.S.
1 right-of-way and exclusive mass transit corridors and limited rate of growth,
Monroe County will not establish measures for the acquisition and preservation of
transit rights-of-way and exclusive mass transit corridors.
The County's GOPs appear to be adequate in supporting the use of Mass Transit
facilities as an alternative transportation strategy.
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D. Strategies:
• There is no official transfer station for the three main intercity transit routes
(the Dade-Monroe Express (MDT #301) in the northern region between Florida
City, Key Largo and Marathon; the Card Sound Express (MDT #302) between
Florida City and Ocean Reef Club (Key Largo); and the Lower Keys Shuttle in the
southern region of the County between Key West and Marathon). However, the
bus stop at U.S. 1 and Sombrero Beach Road (MM 50) does serve as a midway
point at which riders can transfer to/from the Lower Keys Shuttle and the
Miami-Dade Express #301 route. The three main intercity transit routes lack
adequate signage alerting passengers as to the location of this "transfer" stop at
MM 50, and there is no indication or signage of a transfer location at the
Sombrero Beach Road bus stop, nor is it noted on any of the transit vehicles. The
County should provide signage at the various transit locations and on transit
vehicles to properly alert passengers of this "transfer"stop at MM50.
• There is no indication on the fare tickets or at the point of sale for the tickets that
displays the MM50 "transfer"stop. The County should provide this indication on
the fare tickets and display this information at the point of ticket sales. It should
be noted, however, that information detailing this transfer stop is available on
the Lower Keys Shuttle's website.
• The two transit systems that serve the north and south sections of the U.S. 1
corridor should be better coordinated. The scheduling of the routes should be
adjusted to ensure more efficient transfers.
• Due to the limited number of designated bus stops and shelters (signed, with or
without amenities) throughout the U.S. 1 Corridor, especially in the Upper Keys,
north of Marathon, passengers must hail the buses to stop whether or not they
are located at one of the bus shelters. The County should consider creating more
identified bus stops in these areas.
• There are a number of disparate transportation projects planned or are
currently being undertaken within the County e.g. Heritage Trail pathways.
These projects are often managed by different entities. This results in a "piece-
meal" and disconnected approach to the ultimate goal of reducing individual
automobile trips and encouraging the use of alternative modes of transportation.
The County should evaluate the need for developing a Master Transportation
Strategy Plan.
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IV. Natural Resource Protection
Note:Natural Resource Protection has two (2) Issue Statements
Issue Statement #1: Preserve and protect natural resources, including water,
habitat and species.
Note: An overall Background for this Issue Statement is provided. In addition, the
Background, Issue Analysis, Policy Framework and Strategies headings are divided
into ten (10) categories each for this section: Potable Water Supply and Water
Conservation, Habitat and Species Protection, Wetlands, Land Acquisition, Habitat
Conservation Plan for Big Pine and No-Name Keys, Water Quality, Numeric-Nutrient
Criteria Rule, Solid Waste, Marine and Terrestrial Litter, and Invasive Animals.
Overall Background
The County contains one of the Country's most diverse assemblages of terrestrial,
estuarine, and marine flora and fauna. The region includes the vast freshwater
wetlands of the Florida Everglades and Big Cypress, the transitional areas where the
waters of the Everglades discharge into the estuarine environment of Florida Bay,
one of the world's largest coral reef tracts (the only one in the continental United
States), the largest contiguous seagrass community in the world, and the subtropical
habitats of the island chain. The environmental setting of the Keys is exceptional
and unique, making the region a major travel destination.
The protection of the environment has been the focus of much of the land use
planning effort since the adoption of the 2010 Comprehensive Plan in the early
1990s. Since that time, three major changes have been implemented to protect the
Keys unique environment.
The first significant action was the establishment of the Florida Keys National
Marine Sanctuary (FKNMS) in 1990. The Sanctuary encompasses approximately
2,600 square nautical miles of nearshore waters extending from just south of Miami
to the Dry Tortugas. The FKNMS Comprehensive Management Plan was
implemented in 1997 and the Revised Management Plan went into effect in 2007. A
key feature of the FKNMS Management Plan was the establishment of the FKNMS
Water Quality Protection Program (WQPP). The program identified actions to
restore and/or maintain water quality conditions to maintain healthy native plant
and animal populations in FKNMS waters. The Program has funded three long-term
monitoring projects to monitor overall water quality, coral reef and hard bottom
community health, and seagrass community health.
The second significant action was the enactment and implementation of ROGO in
1992 and NROGO in 2002. ROGO and NROGO have slowed the rate of growth and
have development primarily to already disturbed lands or to infill areas.
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Subsequently in 2006, the Tier Overlay Ordinance, a zoning map overlay, was
developed, which established open space requirements for environmentally
sensitive lands. The Tier Overlay Ordinance also modified the ROGO/NROGO point
system to help steer development away from environmentally sensitive lands. On
Big Pine Key and No Name Key, particular attention was made to land use
protection with the adoption of the Habitat Conservation Plan (with the Incidental
Take Permit) and the Livable CommuniKeys Management Plan for these keys.
These plans were implemented to complement ROGO/NROGO and the Tier Overlay
Ordinance to protect habitat on Big Pine Key and No Name Key for key deer, eastern
indigo snake, and lower keys marsh rabbit.
The third significant action was the initiation of major steps to improve nearshore
water quality throughout the Keys. Historically, development in the Keys relied on
on-site cesspits and septic tanks, which resulted in water quality degradation of
inshore areas. In 1985, the waters of the Florida Keys were designated as
Outstanding Florida Waters pursuant to State law. In 2002, the Florida Keys were
designated as a No Discharge Zone (NDZ), which prohibits the discharge of boater
sewage into all waters of the FKNMS, the NDZ was expanded in 2010. Water quality
is monitored under the FKNMS WQPP and the U. S. Environmental Protection
Agency (USEPA) Strategic Targets for the Water Quality Monitoring Project. County
efforts to improve nearshore water quality have included measures such as new
criteria for on-site sewage treatment and disposal systems, and connection of
individual homes and subdivisions to central wastewater treatment plants.
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Issue Cateaoa 1(a):Potable Water Supply and Water Conservation
A. Background: The primary source of potable water consumed in the Keys is
the Biscayne Aquifer in southeastern Miami-Dade County. Water is pumped from
the Florida City Wellfield and distributed by the FKAA. With treatment, water with
drawn from the Biscayne Aquifer meets all federal and State drinking water
standards. Alternative potable and non-potable water supplies in use include
private cisterns, private wells, home desalinization systems, and bottled water.
Most users of these alternative sources rely on them only as supplements to the
FKAA supplied water. Cistern and well water is typically reserved for irrigation and
other non-potable uses. The deeper Floridan Aquifer, which requires desalination
treatment before it is suitable for either potable or irrigation use, is locally used for
landscape irrigation.
Based on the SFWMD ePermitting database (accessed June 4, 2010), there are only
three consumers in the County that are using enough Floridan Aquifer water to
require an individual SFWMD permit: Ocean Reef Community (golf course and
landscaping), Silver Shores Mobile Home Park (landscaping), and Card Sound Golf
Course (golf course irrigation).
Potable water is supplied to the Keys by the FKAA according to the terms of the
current consumptive use permit (SFWMD Water Use Permit No. 13-00005-W). A
complex set of interagency and intergovernmental agreements control the water
allocation and distribution. Agencies and governments which are parties to these
agreements include FKAA, the SFWMD, the FDEP, the County, and the City of Key
West. The County, being a retail customer of FKAA, does not have any local
responsibility for potable water supply or distribution to its citizens.
The County has a water conservation component of the NROGO (Section 138-47, of
the Monroe County Land Development Code (LDC) as required under Policy 701.9.7.
The intent of this ordinance is to encourage the planting of native vegetation and
promote water conservation. The graded scale (points) are assigned to the project
based on the percentage of native landscape plants on the property beyond what is
required within landscaped bufferyards and parking areas. To implement Objective
701.9, the County developed a 10-year Water Supply Work Plan that identifies
alternative water supply projects, traditional water supply projects, conservation,
and reuse necessary to meet the unincorporated area water supply needs,
consistent with the SFWMD Lower East Coast Regional Water Supply Plan and the
FKAA 20-year Water System Capital Improvement Master Plan.
B. Analysis: For 2010, demand for potable water by existing and
committed residential and non-residential uses in the Florida Keys is estimated at
approximately 20.07 million gallons per day. The projected demand (year 2035) for
potable water from residential and non-residential uses in the FKAA service area is
estimated at 23.8 million gallons per day. This water will continue to be provided
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by the FKAA. The SFWMD Consumptive Use Permit will provide for this projected
demand. Water will continue to be obtained from the Florida City Wellfield.
Water conservation strategies in use or under consideration in the County focus
upon leak detection and repair; metering to detect unaccounted-for water; reuse of
wastewater to the extent practicable; reduction of consumption through a
conservation-oriented rate structure; water use restrictions; distribution of water
conservation kits; adoption of a Florida-Friendly Landscape Ordinance; and
adoption of plumbing fixture efficiency standards. Ten-year (2010) water need
protections account for the FKAA Leak Detection Program, which has a goal of
recapturing 13 percent of unaccounted for water loss.
In the future, increased water conservation through demand management will
become even more important as supplies could become scarce. Equally important is
that reduction of water use, treatment and distribution through more aggressive
water conservation mitigates the use of energy to maintain infrastructure. Cutting
the demand for landscape irrigation, generally the highest type of water use,
becomes more of a priority to meet both goals. Given the County's history related to
water conservation, additional focus should be placed on more upgrades to the
efficiency of water use such as in buildings and irrigation infrastructure.
C. Policy Framework:
Policy 215.1.1: Monroe County shall adopt level of service standards (LOS) for the
following public facility types required by Chapter 9J-5, F.A.C: roads, sanitary sewer,
solid waste, drainage, potable water, parks and recreation, and mass transit. The
LOS standards are established in the following sections of the Comprehensive Plan:
2. The LOS for potable water is established in Potable Water Policy 701.1.1;
GOAL 701: Monroe County shall support FKAA in the fulfillment of their statutory
obligation and authority to provide for a safe, high quality and adequate supply,
treatment, distribution, and conservation of potable water to meet the needs of
present and future residents.
Objective 701.1: Monroe County shall ensure that at the time a development
permit is issued, adequate potable water supply, treatment, and distribution
facilities are available to support the development at the adopted level of service
standards concurrent with the impacts of such development.
Policy 701.1.1: Monroe County hereby adopts the following level of service
standards to achieve Objective 701.1 and shall use these standards as the basis for
determining facility capacity and the demand generated by a development
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Policy 701.1.2: Monroe County will encourage FKAA to pursue a goal of decreasing
unaccounted for water to 13 percent or lower by replacing deficient transmission
and distribution lines and implementing meter improvements by the year 2005.
Obtaining this goal will result in the following projected potable water consumption:
Residential Consumption 57.00 gal./capita/day
Non-Residential Consumption 0.29 gallons/sq ft/day
Overall Consumption 86.00 gal./capita/day
Policy 701.1.3: By January 4, 1997, Monroe County shall adopt Land Development
Regulations which provide a Concurrency Management System (See Capital
Improvements Policy 1401.4.5). The Concurrency Management System shall ensure
that no permits will be issued for new development unless adequate potable water
supply, treatment, and distribution facilities needed to support the development at
the adopted level of service standards are available concurrent with the impacts of
development.
Policy 701.1.4: The Concurrency Management System adopted in accordance with
Policy 701.1.3 shall specify procedures for updating facility demand and capacity
information, utilizing data provided by the FKAA as potable water facilities are
installed or upgraded.
Policy 701.1.5: Monroe County shall amend the potable water quantity level of
service upon attainment of the goal level of service as indicated in Policy 701.1.2.
Policy 701.1.6: Monroe County shall implement a concurrency management
system that is consistent with the South Florida Water Management District Lower
East Coast Regional Water Supply Plan and Florida Keys Aqueduct Authority 20-
year Water System Capital Improvement Master Plan. (Ord. 022-2009)
Policy 701.1.7: Monroe County shall prepare and maintain a 10-year Water Supply
Work Plan that identifies alternative water supply projects, traditional water supply
projects, conservation, and reuse necessary to meet the Monroe County
Unincorporated Area water supply needs, consistent with the South Florida Water
Management District Lower East Coast Regional Water Supply Plan and the Florida
Keys Aqueduct Authority 20-year Water System Capital Improvement Master Plan.
(Ord. 022-2009)
Policy 701.1.8: Monroe County shall update the 10-year Water Supply Work Plan
every 5 years or within 18 months after the governing board of the South Florida
Water Management District approves an updated regional water supply plan. (Ord.
022-2009)
Objective 701.2: In coordination with Monroe County,the FKAA shall:
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1. maintain a five year schedule of capital improvement needs for potable
water supply, treatment and distribution, as identified through and in
accordance with Policy 701.2.2;
2. identify responsible parties and agencies; and
3. identify time frames for completion.
4. The schedule will be updated annually consistent with Capital
Improvements Policy 1401.1.2, and in accordance with the FKAA's annual
budget process.
Policy 701.2.1: The Florida Keys Aqueduct Authority (FKAA) shall continue to
address the future needs of potable water supply, treatment and distribution
facilities and evaluate options to satisfy these needs. FKAA and Monroe County shall
evaluate and rank proposed capital improvement projects, on the basis of delivery
cost and other factors, considered for inclusion in the five-year schedule of capital
improvement needs in accordance with the criteria contained in Policy 701.2.2 as
well as the Goals, Objectives, and Policies of the Comprehensive Plan.
Policy 701.2.2: Proposed capital improvement projects shall be evaluated and
ranked according to the following priority level guidelines:
Level One - Whether the project is consistent with the FKAA's enabling legislation.
Level Two - Whether the project is needed to protect public health and safety,
provide facilities and services, or to preserve or achieve full use of existing facilities.
Level Three - Whether the project increases efficiency of use of existing facilities,
prevents or reduces future improvement costs, provides service to developed areas
lacking full service, or promotes in-fill development.
Level Four - Whether the project represents a logical extension of facilities and
services within a designated service area.
Objective 701.3: Monroe County and the FKAA shall work cooperatively with the
South Florida Water Management District (SFWMD), Dade County, and the Cities of
Layton, Key Colony Beach and Key West to ensure the protection and availability of
an adequate raw water supply at the Florida City Wellfield to meet the needs of
Monroe County through the year 2010.
Policy 701.3.1: In coordination with Monroe County, the FKAA shall, as necessary,
renew the Florida City Wellfield consumptive use permit issued by SFWMD.
Alternative water sources such as reverse osmosis, cisterns and water re-use shall
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be evaluated and the most feasible solution implemented in the event that the
necessary withdrawals from the Biscayne Aquifer are limited.
Policy 701.3.2: The Monroe County Growth Management Division shall provide
technical assistance to the FKAA for the consumptive use permitting process. This
technical assistance shall include providing information regarding future land use
growth patterns, population trends, growth management policies and demand
projections to ensure consistency between the FKAA permitting process and the
Monroe County Comprehensive Plan.
Policy 701.3.3: The Monroe County Growth Management Division shall annually
supply FKAA and SFWMD with the Concurrency Management Report prepared in
accordance with Capital Improvements Policy 1401.4.9. These annual reports shall
include the latest information on land use, population trends, and growth
management policies as well as facility capacity analyses using data supplied by
service providers.
Policy 701.3.4: Monroe County shall continue to reserve the right to review and
comment on the SFWMD plans, such as water supply, cost, needs and sources, and
water conservation plans, as they are developed.
Policy 701.3.5: Monroe County shall continue to coordinate with the Cities of
Layton, Key Colony Beach and Key West and FKAA as necessary to facilitate system-
wide compatibility on such potable water-related issues as potable water levels of
service, consumption projections, water conservation programs, and emergency
management.
Objective 701.4: Monroe County shall work cooperatively with Dade County to
encourage land use planning and development controls which shall protect the
recharge area of the Florida City Wellfield from potential sources of groundwater
contamination.
Policy 701.4.1: Protection of the Florida City Wellfield shall be accomplished
through continued implementation of the Dade County Wellfield Protection
Ordinance and the SFWMD Water Supply Policy Document.
Policy 701.4.2: By January 4, 1998, Monroe County shall seek an interlocal
agreement with FKAA and Dade County. This agreement shall provide Monroe
County with an opportunity to comment on land use and regulatory issues related to
the Florida City Wellfield, aquifer and aquifer recharge area. It shall set forth
procedures for review of land use and regulatory activities identified as having
potentially significant impacts on the aquifer recharge and water supply systems
especially concerning hazardous waste generation. Criteria for determination of
significant impacts shall be included in the interlocal agreement.
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Objective 701.5: FKAA shall supply adequate operating pressures in the
transmission and distribution system to meet the adopted level of service standard
specified in Policy 701.1.1(2) for the customer service connection.
Policy 701.5.1: FKAA shall continue to maintain the transmission network and
construct improvements to continue to provide a minimum operating pressure of
20 PSI at customer service.
D. Strategies
• With respect to potable water, the County's GOPs have been successful in
promoting environmental protection of water resources and orderly, economical
development, including the requirement that potable water be available
concurrent with the impacts of development.
• With respect to water conservation, the County should encourage water
conservation strategies (including but not limited to use of cisterns, stormwater
on-site collection systems used for irrigation, and bio-swales) that reduce the
demand for surface water treatment in the natural environment while
maintaining the viability of freshwater wetlands and upland forested natural
communities.
• The County should focus on ways to upgrade the efficiency of water use in
buildings and irrigation infrastructure, for example by modifying existing
ordinances to assure the most aggressive water efficiency requirements for
landscape irrigation and building construction possible.
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Issue Category#1(b):Habitat and Species Protection
A. Background:
A geospatial GIS analysis was conducted to examine the potential effects of
proposed future land uses on vegetation cover. The analysis overlaid the existing
vegetation cover map (habitat map) with the Future Land Use map.
The Technical Document provides a table that identifies the amount of existing
natural habitats on future land use designations, based on the Future Land Use map
series. 78.4 per, Residential Conservation or Military, suggesting that a majority of
natural habitat acreage has a relatively high level of protection. This is evident for
all individual habitat types (Mangrove, Hammock, Pineland, etc.) except for beach
berm. . For Beach Berm, future land use is 31.3 percent for Recreation followed by
26.8 percent for Residential Conservation. This is the only natural habitat with a
relatively small percentage of land categorized as Conservation.
The natural communities that have the most percentage located in future residential
land uses (low density, medium density, and high density residential) are Exotic
dominated lands (31.8 percent), Freshwater Wetlands (30.1 percent), Tropical
Hardwood Hammocks (26.4 percent), Undeveloped lands (24.4 percent), Pinelands
(22.6 percent), Beach/Berm (19.6 percent), and Buttonwood (13.4 percent).
Although located in future Residential land use designations, residential (and other)
development is controlled by the ROGO/NROGO ordinances and by the Tier Overlay
Ordinance [see Section 3.19 (Effects of Future Land Use on Natural Resources) and
below]. Most of the highest quality habitats are located in Tier 1 lands. For
example, 95 percent of all of the Freshwater Wetlands in the Keys are located in Tier
1, 93 percent of Tropical Hardwood Hammocks are located in Tier 1, 98 percent of
Pinelands are located in Tier 1, 83 percent of Beach/Berm are located in Tier 1, and
90 percent of Buttonwood are located in Tier 1. The Tier Overlay Ordinance is
summarized in the following section.
B. Analysis: The 1990 Plan identified concerns associated with the high rates
of growth in the Florida Keys. To address concerns regarding public safety
(particularly during a mandatory hurricane evacuation) and quality of life issues,
the Monroe County Board of Commissioners recommended the development of a
dwelling unit allocation system. On June 23, 1992, the County adopted and
implemented the Rate of Growth Ordinance (ROGO).
The primary purpose of ROGO was to control growth throughout the County so that
the population can be evacuated in a timely manner in the event of a hurricane. In
1992, it was determined that 2,550 residential permits could be added and still
maintain a 24-hour standard for evacuation clearance time.
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Under ROGO, building permits are issued for a new dwelling only if it has received a
residential dwelling unit allocation award, or if it is determined to be exempt.
NROGO applies to the development of all new and expanded nonresidential floor
area developments, except as exempted, for which a building permit or
development approval is required.
The process of receiving an allocation is competitive and ROGO and NROGO
establish the rules and procedures for that competition. Competition is a point
based system that allows applicants for new residential or commercial building
permits to compete against each other for the limited number of allocations issued
each year. The number of allocations available is determined through the adoption
of an administrative rule at the State level. The number of allocations is based on
the progress the County has made toward achieving stipulated State goals.
The ROGO allocation system applies only to the unincorporated area of the County
and excludes the mainland and Ocean Reef (northern Key Largo). It is divided into
three subareas:
• The unincorporated area of the county north of Tavernier Creek and corporate
limits of the Village of Islamorada (approximately mile marker 90).
• The unincorporated area of the county from the corporate limits of the Village of
Islamorada (approximately mile marker 72) south to the corporate limits of the
City of Key West at Cow Key Bridge on U.S. 1 (approximately mile marker 4),
excluding Big Pine Key and No Name Key.
• Big Pine Key and No Name Key, which are covered under an approved HCP and
adopted LCP: the Big Pine Key-No Name Key HCP and LCP are separate
conservation planning documents that operate in conjunction with ROGO and
NROGO [see Section 3.19.2.2 (Tier Overlay Ordinance in Big Pine Key and No
Name Key)].
Market Rate Applicants in ROGO compete for an allocation award with other
applicants in the same sub-area. There are two competition areas for Affordable
Housing which are 1) the Big Pine / No Name Key subarea and 2) the remainder of
unincorporated Monroe County. The affordable housing applicants compete based
on two categories: 1) very low, low, & median income category or 2) moderate
income category. Allocations are awarded each quarter in each sub-area. The ROGO
system is reviewed quarterly and monitored by the County Department of Planning
and Environmental Resources.
Point System within ROGO: Points are intended to discourage development in
environmentally sensitive areas and to direct and encourage development to
appropriate infill areas. The primary point assignments are1O:
10 Policy 101.5.4 of the Monroe County 2010 Comprehensive Plan .
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Primary point assignments under ROGO
Point Criteria (see Section 3.19.2 for an explanation of Tiers)
Assignment
+0 An application which proposes a dwelling unit within an area designated Tier I
on Big Pine Key or No Name Key.
+10 An application which proposes a dwelling unit within an area designated Tier I
(natural area).
+10 An application which proposes development within an area designated Tier II
(transition and sprawl reduction area) on Big Pine Key or No Name Key.
+20 An application which proposes development within an area designated Tier III
(infill area) on Big Pine Key or No Name Key.
An application which proposes the clearing of any upland native habitat
+20 vegetation that is part of a one acre or larger upland native habitat within an area
designated Tier III-A(special protection area).
+30 An application which proposes development within an area designated Tier III
(infill area) outside of Big Pine Key or No Name Key.
Points to implement the HCP and the Livable CommuniKeys Community
Master Plan for Big Pine Key and No Name Key
Point
Assignment Criteria
- 10 An application which proposes a dwelling unit on No Name Key.
- 10 An application which proposes development in designated Lower Keys Marsh
Rabbit habitat or buffer areas as designated in the community master plan.
- 10 An application which proposes development in Key Deer Corridor as designated
in the community master plan.
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Points to encourage density reductions
Point Criteria
Assignment
An application which aggregates a contiguous vacant, legally platted,
vacant,buildable lot, zoned IS, IS-D, URM, URM-L, or CFV, located within a
+4 Tier III designated area together with the parcel proposed for
development. Each additional vacant, legally platted,buildable lot which
is aggregated that meets the above requirements will earn the
application the additional points.
On Big Pine Key and No Name Key. An application which aggregates a
contiguous vacant, legally platted,vacant, buildable lot, zoned IS, IS-D,
+3 URM, URM-L, or CFV, located within a Tier II or Tier III designated area
together with the parcel proposed for development. Each additional
vacant, legally platted,buildable lot which is aggregated that meets the
above requirements will earn the application the additional points.
Additional Requirements:
• The proposed development cannot clear upland native vegetation of more than 5,000
square feet or the open space requirements of LDR Section 118-911.
• The application shall include,but not be limited to
o A legally binding, restrictive covenant limiting the number of dwelling units on the
aggregated lot, running in favor of the county and enforceable by the county,
subject to the approval of the growth management director and county attorney
and recorded in the office of the clerk of the county prior to the issuance of any
building permit pursuant to an allocation award.
• Exception: No points for aggregation are awarded for any application that proposes
the clearing of any native upland habitat in a Tier III-A (Special Protection Area) area.
No aggregation of lots will be permitted in Tier I.
"The Department of Community Affairs and the Keys communities evaluated the adopted clearing
limits for high and moderate quality tropical hardwood hammocks. The allowable amount of
clearing is currently determined by the quality of the hammock and varies by tier designation and
community. Recommendations were made to bring parity between incorporated and
unincorporated Monroe County,and to strengthen the protection of tropical hardwood hammocks.
Proposed recommendations included land clearing limits, which vary according to the tier
designation, but cannot exceed 7,500 square feet. It was further recommended that the
Comprehensive Plan revise its lot aggregation policies,land development regulations,and Rule 28-
20.120(4)(e), F.A.C., to limit clearing of aggregated lots that receive points in the building permit
allocation system from 5,000 square feet to a maximum of 7,500 square feet(DCA,2010).
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Points to encourage dedication of lands in Tier I and Tier II (Big Pine Key and
No Name Keyl areas and to encourage affordable housing in Tier III lands
Point Criteria
Assignment
An application,which includes the dedication to the county of one vacant,
legally platted buildable lot, zoned SC, IS, IS-D,URM, URM-L,or CFV,or a
+4 legally platted,buildable lot within any CFSD that authorizes dwelling
units. Each additional vacant,legally platted,buildable lot which is
dedicated that meets the above requirements will earn the application the
additional points.
On Big Pine Key and No Name Key, an application,which includes the
dedication to the county of one vacant,legally platted buildable lot,zoned
+2 SC,IS,IS-D, URM, URM-L, or CFV,or a legally platted,buildable lot within
any CFSD that authorizes dwelling units. Each additional vacant,legally
platted,buildable lot which is dedicated that meets the above requirements
will earn the applicant the additional points.
An application,which includes the dedication to the county of a vacant,
+1 for each legally platted,buildable lot of 5,000 square feet or more within a
5,000 square suburban residential district(SR) or suburban residential-limited district
feet of lot (SR-L)within a designated Tier I area. Each additional vacant,legally
area platted,buildable lot of 5,000 square feet or more that meets the above
requirements will earn points.
An application,which includes the dedication to the county of one vacant,
legally platted,buildable lot of 5,000 square feet or more within a native
+0.5 area district(NA) or sparsely settled district(SS) in a designated Tier I
area. Each additional vacant,legally platted,buildable lot that meets the
above requirements will earn the half-point.
An application,which includes the dedication to the county of at least one
+4 acre of vacant,unplatted,buildable land located within a designated Tier I
area. Each additional one acre of vacant,unplatted,buildable land that
meets the above requirements will earn the points.
On Big Pine Key and No Name Key, an application,which includes the
dedication to the county of at least one acre of vacant,unplatted,buildable
+2 land located within a designated Tier I area. Each additional one acre of
vacant,unplatted,buildable land that meets the above requirements will
earn the points.
Additional requirements
• The application shall include,but not be limited to
o A statutory warranty deed that conveys the dedicated property to the county shall be
approved by the growth management director and county attorney and recorded in the
office of the clerk of the county prior to the issuance of any building permit pursuant to an
allocation award.
• Lots or parcels dedicated for positive points under this paragraph shall not be eligible for
meeting the mitigation requirements of the Big Pine Key and No Name Key Overlay Zone.
• Lots or parcels donated for points in Big Pine Key or No Name Key must be located within Tier I
or Tier II lands in Big Pine Key or No Name Key.
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Additional points
Point Criteria
Assignment
An application for market rate housing unit which is part of employee or
+6 affordable housing project The market rate dwelling unit must be part of
an approved employee or affordable housing project and meet all the
requirements and conditions pursuant to LDR Section 130-161(a) and(f).
4 An application which proposes development within a"V" zone on the
FEMA flood insurance rate map.
An application for which development is required to be connected to a
+4 central wastewater treatment system that meets BAT/AWT standards
established by the State legislature.
A point shall be awarded on the anniversary controlling date for each year
+1 that the application remains in the ROGO system up to a maximum of four
years.
Proposes payment to the county's land acquisition fund in an amount
equal to the monetary value of a ROGO dedication point times the number
of points to be purchased,up to a maximum of two points.
The monetary value of each point shall be established annually by
+ 1 to + 2 resolution of the board of county commissioners.
The monetary value of each point shall be based upon the average fair
market value of privately-owned,buildable,vacant, IS/URM,platted lots in
Tier I divided by four.
Payment to the county's land acquisition fund shall be prior to the
issuance of any building permit pursuant to the allocation award.
Tier Overlay Ordinance in Unincorporated Monroe County: On March 21, 2006, the
Tier Overlay Ordinance was adopted as a zoning overlay. The Tier Overlay
Ordinance is a ranking of land based on environmental characteristics.
Section 130-130 of the LDCs stipulates the Tier Overlay Ordinance as a planning tool
and as an overlay district to manage development and conservation of land. The
purpose is to designate geographical areas outside of the mainland of the County
(excluding the Ocean Reef planned development) into tiers. Each tier:
• assigns points used in the ROGO and NROGO systems;
• determines the permittable amount of clearing of upland native vegetation; and
• prioritizes lands for public acquisition.
The tier boundaries are shown on the Tier Overlay District Maps, which are
available from the County Department of Planning and Environmental Resources.
Lands in unincorporated Monroe County (excluding the Ocean Reef planned
development) are mapped as Tier I, III, and III-A (Special Protection Area). Lands
on Big Pine Key and No Name Key are mapped as Tier I, II, or III. The Tier
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boundaries were determined using aerial photographs, data from the Florida Keys
Carrying Capacity Study, endangered species maps, property and permitting
information, and limited field evaluations. Approximately half of the land subject to
the Tier Overlay Ordinance is classified as Tier I.
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Tier classifications stem criteria for Unincor orated Monroe Count
Lower Middle Upper Total
Tier Description Keys - Keys - Keys - acres
acres acres acres
Tier I boundaries were delineated
to include one or more of the
following criteria:
• Vacant lands which can be
restored to connect upland
native habitat patches and
reduce further fragmentation
of upland native habitat.
• Lands required to provide an
undeveloped buffer, up to 500
feet in depth, if indicated as
appropriate by special species
studies, between natural areas
and development to reduce
secondary impacts. Canals or
roadways, depending on
width, may form a boundary
that removes the need for the
I buffer or reduces its depth. 31,490.0 944.1 16,979.4 49,413.4
• Lands designated for
acquisition by public agencies
for conservation and natural
resource protection.
• Known locations of threatened
and endangered species, as
defined in LDR Section 101-1,
identified on the threatened
and endangered plant and
animal maps or the Florida
Keys Carrying Capacity Study
maps, or identified in on-site
surveys.
• Conservation, Native Area,
Sparsely Settled, and Offshore
Island land use districts.
• Areas with minimal existing
development and
infrastructure.
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Lower Middle Upper Total
Tier Description Keys - Keys - Keys - acres
acres acres acres
Pertains only to Big Pine Key/No
Name Key. Scattered lots and
fragments of environmentally
sensitive lands that may be found in
II platted subdivisions. A large number 278.2 0.0 0.0 278.2
of these lots are located on canals
and are of minimal value to the key
deer and other protected species
because the canal presents a barrier
to dispersal.
Tier III are lands located outside of
Big Pine Key and No Name Key that
III are not designated Tier I or Tier III-A. 7,190.5 1,606.4 26,134.0 34,930.9
Tier III represents the majority of
developable acreage in the County.
Tier III-A is designated as a Special
III-A Protection Area. It is defined as 130.8 0.0 1,204.9 1,335.7
lands that have one acre or more of
native upland habitat.
Some properties do not have a tier
designation. These undesignated
properties are found throughout the
Keys but most occur in Ocean Reef,
which is exempt from the Tier
Undesignated Overlay Ordinance. Others are 5,319.1 292.2 8,745.9 14,357.2
rights-of-way,military installations,
or properties that were not
designated due to mapping
discrepancies and,at the time of the
preparation of this document, are
being evaluated for tier designation.
Source: Acreages from Monroe County GIS database 10/8/2010.
After adoption of the Tier Maps and ordinances, a legal challenge was filed to the
ordinance which resulted in an order from an administrative law judge that
recommended striking certain portions of the tier criteria ordinance which was
used to classify parcels in the Tier Overlay Ordinance. DCA Secretary Pelham
adopted the administrative law judge's recommended order in his Amended Final
Order. This Final Order invalidated the tier designations for approximately 3,100
parcels. With the complex permitting system in the County, the de-designation of
these parcels, along with several other groupings of parcels where property owners
petitioned the County for amendments to their Tier Designation, this has caused
some parcels/land to be "Tier-less", or "Tier Undesignated", with no ability to score
them in ROGO or NROGO. The County has re-evaluated and processed these lands
into Tier categories, based upon recommendations made by a Tier Designation
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Review Committee (TDRC). The County adopted Ordinance 005-2011, 006-2011,
007-2011 and 008-2011 in May 2011 to assign Tier designations to all these parcels.
Tier Overlay Ordinance in Big Pine Key and No Name Kew The Tier Overlay
Ordinance in unincorporated Monroe County differs somewhat from the islands of
Big Pine Key and No Name Key. The tier boundaries on Big Pine Key and No Name
Key were designated using the Big Pine Key and No Name Key HCP (Monroe County
et al., 2006) and the adopted community master plan for Big Pine Key and No Name
Key. The HCP provides a strategy to protect the habitat of the endangered key deer
(Odocoileus virginianus clavium), endangered lower keys marsh rabbit (Sylvilagus
palustris hefneh), and threatened eastern indigo snake (Drymarchon corais couperl).
The HCP protects the highest quality habitat and directs development to areas that
have already been impacted. The HCP was developed in conjunction with an
Incidental Take Permit issued by the USFWS on June 9, 2006. Under this permit,
landowners obtaining a building permit from the County may "take12" threatened
and endangered wildlife and can proceed with construction without any other
permits or reviews from the USFWS.
Based on the Key Deer studies completed under the HCP and the spatial model that
resulted, the County developed a conservation priority classification for private
undeveloped lands in the study area.
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12"Take"is defined in the Endangered Species Act of 1973, as amended (87 Stat. 884; 16 U.S.C. 1531
et seq.) as harass, harm, pursue, hunt, shoot, wound, kill, trap, capture, or collect any threatened or
endangered species. Harm may include significant habitat modification where it actually kills or
injures a listed species through impairment of essential behavior(e.g.,nesting or reproduction).
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Tier classification criteria for Big Pine Key and No Name Key
Area acres
Tier Description Big Pine Key No Name Key
Lands where all or a significant portion of the land
area is characterized as environmentally sensitive
and is important for the continued viability of HCP
I covered species. These lands are high quality key 973.4 217.0
deer habitat, generally representing large contiguous
patches of native vegetation that provide habitat for
other protected species.
Scattered lots and fragments of environmentally
sensitive lands that may be found in platted
II subdivisions. A large number of these lots are 101.6 0
located on canals and are of minimal value to the key
deer and other protected species because the canal
resents a barrier to dispersal.
Scattered lots within already heavily developed areas
that provide little habitat value to the key deer and
III other protected species. Some of the undeveloped 58.5 0
lots in this Tier are located between existing
developed commercial lots within the U.S. 1 corridor
or are located on canals.
Total 1,133.5 217.0
Source: HCP for Florida key deer(Odocoileus virginianus clavium)and other protected species on Big Pine Key
and No Name Key,Monroe County,Florida. April 2003,revised,April 2006.
Tier I lands are higher-quality key deer habitat (and other protected species
considered in the plan) while Tier III lands are the lowest quality. Most of the
parcels in Tiers II and III are interspersed among developed parcels and along
canals. The tier classification helps to determine the location of potential new
development and to prioritize mitigation areas.
Tiers are also used as part of the County's 20-year land acquisition program. Tier I
land will receive first priority for acquisition, Tier II land and patches of tropical
hardwood hammock or pinelands of one acre or greater in areas within Tier II land
will receive second priority for acquisition, and Tier III lands will be third priority
for acquisition, except for acquisition of land for affordable housing, which also shall
be a first priority. These areas will be set aside for conservation or retirement of
development rights of vacant privately-owned, buildable, platted lots within Tier I
and Tier II and the acquisition of scarified and disturbed lands for affordable
housing within Tier III (Monroe County et al., 2006).
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Tier Overlay District Map Amendments: According to Section 130-130 of the LDCs,
the Tier Overlay District Map may be amended to reflect existing conditions in an
area because of drafting errors,, or regrowth of hammock. The Tier Overlay District
Map amendments are made according to procedures set in the LDCs for map
amendments.
The most suitable habitat for listed species and unprotected plant and animal
species is located within parks, preserves, and refuges. These lands and a majority
of remaining suitable habitat are located within lands predominately categorized as
Tier I lands. As discussed for each listed species, the most suitable habitat for each
terrestrial species is generally located in lands protected by the Tier Overlay
System. The County's ROGO/NROGO as well as the LDCs further protect these
habitats. In addition, most wetlands (freshwater marsh, salt marsh, buttonwood,
salt ponds, freshwater lenses, mangroves, and some areas of tropical hardwood
hammocks and pinelands), which provide habitat for several protected species, are
protected by State and federal regulations.
The tier boundaries on Big Pine Key and No Name Key were designated using the
Big Pine Key and No Name Key HCP and the adopted community master plan for Big
Pine Key and No Name Key. The HCP, developed in conjunction with an Incidental
Take Permit, protects the highest quality habitat and directs development to areas
that have already been impacted. Thus, future development would affect lands that
have reduced habitat value for protected wildlife species.
Effects of Future Land Uses on Seagrass Beds: The FKNMS Management Plan
provides the basis for future federal, State, and local conservation activities affecting
the resources of the FKNMS, including its seagrass beds. The County's Plan and
LDCs provide similar goals, strategies, and code regulations to provide protection to
seagrass communities.
Seagrass beds protection in the future can be achieved through the LDCs and by
actions of the Monroe County Marine Resources Office. The LDCs currently prohibit
new dredging in the Florida Keys and prohibits maintenance dredging within areas
vegetated with seagrass beds. No new dredging has taken place in unincorporated
Monroe County in recent years and it is expected that this trend will continue. State
regulations oversee placement of boat docks and associated structures. However,
inexperienced boaters often contribute to benthic resource damage. The FKNMS
Management Plan has implemented the Mooring Buoy and Waterway Management
Action Plan to reduce vessel damage to seagrass beds (as well as coral reefs and
other benthic communities). The Marine Resources Office coordinates with FDEP
on the existing policy prohibiting mooring buoy fields over seagrass beds. The
Marine Resources Office identifies derelict vessels and receives financial assistance
to remove them.
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Effects of Future Land Uses on Coral Communities: The FKNMS Water Quality
Protection Plan monitoring program was established to study the status and trends
of the coral communities. Monitoring has identified a large loss of coral and that
many of the causes of these declines originate from outside the influence of the
County. Losses have been attributed to nutrients and water flows from the
mainland or from ocean/gulf currents. Warming ocean temperatures have been
identified as a major factor in coral bleaching. Solutions will require action on local,
regional, and global scales, many of which are out of the control of the County.
However, the water quality provisions discussed in the next section are in the
control of the County and it is anticipated that, under these provisions, nearshore
water quality will be improved.
Effects of Future Land Uses on Mangroves: No documented reports of mangrove
losses in the Keys have been due to poor water quality. However, they are sensitive
to herbicides, petroleum products, and heavy sediment loads. Most of the County's
mangroves are protected in federal or State parks, preserves, or refuges. The
FKNMS Management Plan provides the basis for future federal, State, and local
conservation activities affecting the resources of the FKNMS, including its mangrove
forests. The Plan identifies the regulatory strategies and responsibilities for
resource protection. It includes a public education program for mangrove
conservation.
Current LDCs limit the alteration of fringing shoreline mangroves along much of the
Keys' unaltered open water shorelines and along altered shorelines and shorelines
of artificial waterways. The LDCs, as well as State and federal regulations, specify
the heights and amount of mangrove trimming that is allowed by exemption or by
permit.
C. Policy Framework:
Policy 101.5.4: Monroe County shall implement the residential Permit Allocation
and Point System through its land development regulations based primarily on the
Tier system of land classification as set forth under Goal 105. The points are
intended to be applied cumulatively.
1. Tier Designation - Utilizing the Tier System for land classification in Policy
105.2.1, the following points shall be assigned to allocation applications for
proposed dwelling units in a manner that encourages development of infill in
predominately developed areas with existing infrastructure and few sensitive
environmental features and discourages development in areas with
environmentally sensitive upland habitat which must be acquired or development
rights retired for resource conservation and protection.
Policy 101.5.9: For the purposes of NROGO scoring pursuant to Policy 101.5.5,
lawfully established non-residential uses shall be assigned +20 points. If any such
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use is located within a Tier I designated area or a Tier III Special Protection Area,
such scoring assignment shall be contingent upon no further clearing of upland
native habitat and no addition to and/or expansion of the existing lot or parcel upon
which the use is located.
Policy 101.13.4: In conjunction with the evaluation of the existing TDR program
pursuant to Policy 101.13.2, parcels within the following habitats and land use
districts shall be designated as sender sites for Transferable Development Rights
(TDRs): Habitat of the following types which lie within any zoning category:
Freshwater wetlands Saltmarsh/Buttonwood wetlands High quality high hammock
High quality low hammock Moderate quality high hammock Moderate quality low
hammock High quality pinelands Low quality pinelands Beach/berm Palm
Hammock Cactus Hammock Disturbed Wetlands.
GOAL 102: Monroe County shall direct future growth to lands which are
intrinsically most suitable for development and shall encourage conservation and
protection of environmentally sensitive lands.
Objective 102.1: Upon adoption of the Comprehensive Plan, Monroe County shall
require new development to comply with environmental standards and
environmental design criteria which will protect disturbed wetlands, native upland
vegetation and beach/berm areas.
Policy 102.1.1: The County shall protect submerged lands and wetlands. The open
space requirement shall be one hundred (100) percent of the following types of
wetlands: 1. submerged lands 2. mangroves 3. salt ponds 4. fresh water wetlands S.
fresh water ponds 6. undisturbed salt marsh and buttonwood wetlands Allocated
density (dwelling units per acre) shall be assigned to freshwater wetlands and
undisturbed salt marsh and buttonwood wetlands only for use as transferable
development rights away from these habitats. Submerged lands, salt ponds,
freshwater ponds, and mangroves shall not be assigned any density or intensity.
Objective 102.2: Upon adoption of the Comprehensive Plan, Monroe County shall
adopt revisions to the Environmental Standards (Section 9.5-335) and
Environmental Design Criteria (Section 9.5-345) of the Land Development
Regulations. These revisions will require new development to further protect
disturbed wetlands, native upland vegetation and beach/berm areas.
Policy 102.2.1: Monroe County shall adopt revised environmental standards and
environmental design criteria as indicated in Conservation and Coastal Management
Policy 204.2.6. These revised standards and criteria will eliminate the net loss of
disturbed wetlands. Where possible, on-site mitigation shall be required in order to
offset any loss of disturbed wetlands by requiring revegetation of an area equal or
greater in size than the area proposed for fill. If on-site mitigation is not possible,
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restoration fees shall be paid pursuant to a wetlands restoration fund; also see
Policy 204.3.1 and 204.3.4]
Policy 102.2.2: Monroe County shall adopt revised environmental standards and
environmental design criteria as indicated in policies adopted pursuant to
Conservation and Coastal Management Objective 205.2. These revised standards
and criteria will protect native upland vegetation and promote restoration of habitat
values of native upland communities, including hardwood hammocks and pinelands.
Policy 102.2.3: Monroe County shall adopt revised environmental standards and
environmental design criteria as indicated in policies adopted pursuant to
Conservation and Coastal Management Objective 206.1. These revised standards
and criteria will protect beach/berm resources. They will address permitted uses,
siting of structures, disturbances, removal of invasive vegetation, and restoration of
native vegetation in beach/berm areas.
Policy 102.3.2: Monroe County shall require development clustering so as to avoid
impacts on sensitive habitats and to provide for the preservation of all required
open space in a contiguous, non-fragmented condition by requiring the following:
1. when a parcel proposed for development contains more than one (1)
habitat type, all development shall be clustered on the least sensitive
portion(s) of the parcel (as is currently required): and
2. development permitted on the least sensitive portion(s) of a parcel shall be
clustered within that portion(s) of the parcel. (See Conservation and Coastal
Management Policy 205.2.3).
Policy 102.4.2: The Land Authority and the Growth Management Division shall
identify the types of lands which shall be considered for acquisition. These shall
include, at a minimum:
1. designated Tier I (Natural Areas) lands as defined in Policy 105.2.1.1,
which shall include all contiguous hammock or pineland areas above four
acres in area;
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 that are required open space under Policy 102.1.1;
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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;
S. 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;
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
Policy 102.4.3: The Land Authority and Growth Management Division shall develop
a priority list of acquisition sites. This list shall be updated annually with public
input. In formulating this list,the County shall prioritize Tier I lands over Tier II (Big
Pine Key and No Name Key) and Tier III lands. Outside the boundaries of Tier I, land
with fragmented hammocks or pinelands of greater than one-acre in area and
wetlands identified in Policy 102.4.2, 2 shall be the second highest priority for
acquisition. Acquisition of 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 shall also be a top priority.
The Monroe County Land Acquisition Master Plan shall contain policies to direct the
overall acquisition program, criteria to follow when setting priorities for acquisition
and a framework for the acquisition process and the sharing of responsibilities.At a
minimum the plan shall include the following: 1. Environmental protection, density
reduction and passive recreation:
a) 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 II (Big Pine and
No Name Key) and Tier III;
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b) buy/sell back to the adjacent property owner's option will be followed in Tier II,
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 II
(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;
c) 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;
d) non-purchase options will also be explored and specific recommendations
included;
e) criteria for the ranking of land acquisitions within the different priority areas will
include 1) the size and the 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.
Policy 103.1.3: Monroe County shall identify Key deer habitat areas as priority
acquisition sites for conservation purposes. Emphasis shall be placed upon
acquisition of movement corridors, sources of fresh water, and undisturbed native
vegetation areas which are located within Improved Subdivisions and which are
outside of the acquisition areas identified by the FWS (for the National Key Deer
Refuge), DNR (for the Coupon Bight CARL Project), and SFWMD (for the Big Pine
Key Save Our Rivers project). Acquisition shall be considered through the Monroe
County Natural Heritage and Park Program. (See Objective 102.4 and related
policies.)
Policy 103.1.4: Monroe County shall support, wherever possible, the efforts of
federal agencies, State agencies, and private non-profit conservation organizations,
to acquire land for conservation purposes within habitat areas of the Key deer.
Policy 103.1.13: Monroe County, in conjunction with the FWS, shall implement
activities to prohibit the destruction of the federally-designated endangered Key
deer and to protect its habitat by addressing:
1. enforcement of animal control laws;
2. incorporation of management guidelines into development orders;
3. construction of fences;
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4. roadside management techniques;
S. feeding laws;
6. speed limit enforcement;
7. removal of invasive plants;
8. distribution of management guidelines to private landowners;
9. attainment of Key deer management objectives; and (See Conservation and
Coastal Management Objective 207.7 and supporting policies.)
10. secondary and cumulative impacts by, among other things, adopting and
implementing appropriate land development regulations.
Objective 103.2: Monroe County, in coordination with the FWS, shall regulate
future development and coordinate the provision of public facilities in North Key
Largo consistent with the Goals, Objectives and Policies of this Comprehensive Plan
in order to maintain the rural and open space character of North Key Largo, as well
as to preserve and enhance the habitat of four (4) species of animals listed as
endangered under the Endangered Species Act, including the American crocodile
(Crocodylus acutus), the Key Largo wood rat (Neotoma floridana smalli), the Key
Largo cotton mouse (Peromyscus gossypinus allapaticola), and the Schaus
swallowtail butterfly (Heraclides aristodemus ponceanus). North Key Largo is
defined as that portion of Key Largo Located between the junction of State Road 905
and U.S. Highway 1 and the Dade County boundary at Angelfish Creek.
Policy 103.2.1: Monroe County shall implement methods including, but not limited
to, designating known habitat of the Schaus swallowtail butterfly as Tier I.
Policy 103.2.3: By January 4, 1997, Monroe County shall adopt revisions to the
Land Development Regulations pertaining to development siting and clustering so
as to avoid impacts on sensitive habitats and to provide for the retention of
contiguous open space by requiring the following:
1. when a parcel proposed for development contains more than one (1)
habitat type, all development shall be clustered on the least sensitive
portion(s) of the parcel (as is currently required); and
2. development permitted on the least sensitive portion(s) of a parcel shall be
clustered within that portion(s) of the parcel. (See Conservation and Coastal
Management Policy 205.2.3.)
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Policy 103.2.4: Upon adoption of the Comprehensive Plan, Monroe County shall
require that the following analyses be undertaken prior to finalizing plans for the
siting of any new public facilities or the significant expansion (greater than 25
percent) of existing public facilities:
1. assessment of needs
2. evaluation of alternative sites and design alternatives for the selected sites;
and
3. assessment of impacts on surrounding land uses and natural resources.
The assessment of impacts on surrounding land uses and natural resources will
evaluate the extent to which the proposed public facility involves public
expenditures in the coastal high hazard area and within environmentally sensitive
areas, including disturbed salt marsh and buttonwood wetlands, undisturbed
beach/berm areas, units of the Coastal Barrier Resources System, undisturbed
uplands (particularly high quality hammocks and pinelands), habitats of species
considered to be threatened or endangered by the State and/or federal
governments, offshore islands, and Conservation Land Protection Areas. Monroe
County shall require that public facilities be developed on the least environmentally
sensitive lands and shall prohibit the location of public facilities on North Key Largo,
unless no feasible alternative exists and such facilities are required to protect the
public health, safety, or welfare.
Policy 103.2.5: Monroe County shall monitor FKAA compliance with federal
regulations prohibiting potable water hookups to designated habitat areas of the
American crocodile, the Key Largo wood rat, the Key Largo cotton mouse, and the
Schaus swallowtail butterfly (pursuant to FKAA Rules Chapter 48-7).
Policy 103.2.6: Monroe County shall implement activities to protect the habitat and
prohibit the destruction of the:
1. American crocodile (See Conservation and Coastal Management Objective
207.8 and supporting policies);
2. Schaus swallowtail butterfly (See Conservation and Coastal Management
Objective 207.10 and related policies); and
3.the Key Largo wood rat and the Key Largo cotton mouse (See Conservation
and Coastal Management Objective 207.12 and related policies.)
Policy 103.2.7: Monroe County shall identify native upland habitats used by the
Schaus swallowtail butterfly and the Key Largo wood rat and the Key Largo cotton
mouse as priority acquisition sites for conservation purposes. Emphasis shall be
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placed upon acquisition of native upland sites which are located within Improved
Subdivisions and which are outside of the acquisition areas identified by the FWS
(for the Crocodile Lake National Wildlife Refuge), and DNR (for the Key Largo
Hammock CARL Project). Acquisition shall be considered through the Monroe
County Natural Heritage and Park Program. (See Objective 102.4 and related
policies.)
Policy 103.2.8: By January 4, 1998, Monroe County shall complete and implement a
cooperative land management program for private and county-owned lands located
within and adjacent to state and federal government-owned parks and conservation
lands which are within or affected by land uses in North Key Largo, including:
1. Crocodile Lake National Wildlife Refuge;
2.John Pennekamp Coral Reef State Park;
3. North Key Largo Hammock State Botanical Site and CARL Project; and
4. Biscayne Bay - Card Sound State Aquatic Preserve. (See Objective 102.9
and related policies.)
Policy 103.2.9: Monroe County shall support, wherever possible, the efforts of
federal agencies, state agencies, and private non-profit conservation organizations,
to acquire land for conservation purposes within North Key Largo. [
Policy 103.2.10: Monroe County shall take immediate actions to discourage private
development in areas designated as units of the Coastal Barrier Resources System.
(See Objective 102.8 and related policies.)
Policy 103.2.11: Prior to issuing a building permit or development approval,
Monroe County shall require an archaeological/historical review of the proposed
development site, performed by a qualified professional familiar with Monroe
County. The review will identify the potential development impacts on any
resources present, and will recommend mitigation measures, if any.
Policy 103.2.12: Prior to issuing a building permit or development approval,
Monroe County shall require that the Monroe County Biologist visit the site of all
development approval and building permit applications within North Key Largo to
assess the need for any federal or state permits.
Policy 103.2.13: Prior to issuing a building permit or development approval,
Monroe County shall require all applicants to obtain all federal and state permits,
including, but not limited to, required permits pertaining to endangered species as
required by the U.S. Fish and Wildlife Service and the Florida Game and Fresh Water
Fish Commission.
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Policy 103.2: Monroe County, in conjunction with the FWS, shall implement
activities to prohibit the destruction of the federally-designated threatened and
endangered species and to protect its habitat by addressing:
1. enforcement of animal control laws;
2. construction of fences;
3. roadside management techniques;
4. feeding laws;
S. speed limit enforcement;
6. removal of invasive plants;
7. distribution of management guidelines to private landowners; and
8. attainment of endangered species management objectives.
Objective 103.3: Monroe County shall coordinate future development on Ohio Key
to protect the habitat value and environmental sensitivity of the wetland system on
that Key that serves as habitat for a variety of wading birds, including the piping
plover (Charadrius melodius), a species listed as threatened under the Endangered
Species Act.
Policy 103.3.3: Upon adoption of the Comprehensive Plan, Monroe County shall
implement methods including, but not limited to, the Permit Allocation and Point
System in order to discourage developments which may adversely impact activities
of the piping plover on their wintering grounds (measures of adverse impact to be
established by the Monroe County Biologist). (See Policy 101.5.4)
Objective 103.4: By January 4, 1997, the Land Development Regulations will be
revised to address the issues in the focal point plans for all four ACCC designations
as stipulated in Objectives 103.1 to 103.3 and related policies.
Policy 103.4.1: By January 4, 1997, the Land Development Regulations will be
revised to eliminate the ACCC designations from Holiday Isle, Big Pine Key, North
Key Largo, and Ohio Key.
GOAL 203: The health and integrity of living marine resources and marine habitat,
including mangroves, seagrasses, coral reefs and fisheries, shall be protected and,
where possible, enhanced.
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GOAL 205: The health and integrity of Monroe County's native upland vegetation
shall be protected and,where possible, enhanced.
Objective 205.1: Monroe County shall utilize the computerized geographical
information system (GIS) and the data, analysis and mapping generated in the
Florida Keys Carrying Capacity Study (FKCCS), FMRI, habitat maps and field
evaluation to identify and map areas of upland vegetation in the Florida Keys and to
prepare Tier Overlay District Maps as required in Policy 105.2.2.
Policy 205.1.1: The County shall establish the following criteria at a minimum to
use when designating Tiers: 1. Land located outside of Big Pine Key and No Name
Key shall be designated as Tier I based on following criteria:
1. Natural areas including old and new growth upland native vegetated areas,
above four acres in area.
2. Vacant land which can be restored to connect upland native habitat
patches and reduce further fragmentation of upland native habitat.
3. Lands required to provide an undeveloped buffer, up to 500 feet in depth,
if indicated by appropriate special species studies,between natural areas and
development to reduce secondary impacts; canals or roadways, depending
on size may form a boundary that removes the need for the buffer or reduces
its depth.
4. Lands designated for acquisition by public agencies for conservation and
natural resource protection.
S. Known locations of threatened and endangered species.
6. Lands designated as Conservation and Residential Conservation on the
Future Land Use Map or within a buffer/restoration area as appropriate.
7. Areas with minimal existing development and infrastructure.
8. Lands on Big Pine Key and No Name Key designated as Tier I, II, or III shall
be in accordance with the wildlife habitat quality criteria as defined in the
Habitat Conservation Plan for those islands. 3. Lands located outside of Big
Pine Key and No Name Key that are not designated Tier I shall be designated
Tier III.
9. Designated Tier III lands located outside of Big Pine Key and No Name Key
with tropical hardwood hammock or pinelands of one acre or greater in area
shall be designated as Special Protection Areas.
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10. Lands within the Ocean Reef planned development shall be excluded
from any Tier designation.
Policy 205.1.2: The County shall ground-truth the upland habitats identified in the
ADID habitat maps, aerial photography, satellite imagery and the FKCCS, including
mapping and preliminary habitat evaluations. Priority shall be given to natural
upland communities of four acres or greater.
Policy 205.1.3: The County shall enter ground-truthed upland native vegetated
area location and evaluation data into the Geographic Information System (GIS) and
use the GIS to analyze the data and prepare the Tier Overlay District Maps for
adoption as required in Policy 105.2.2.
Policy 205.1.4: The GIS will be used to evaluate the lands designated in the
different Tiers, identifying vacant lands, platting and ownership status, zoning, and
appraised values for acquisition planning.
Policy 205.1.5: Land management activities, land acquired and permit data shall be
incorporated into the GIS annually.
Policy 205.1.6: The County shall coordinate its upland native vegetation mapping
and evaluation efforts with those of federal and state agencies and private
researchers so as to avoid duplication of effort. These agencies shall include, at a
minimum, the Environmental Protection Agency (EPA), Army Corps of Engineers
(ACOE), Florida Department of Environmental Protection (FDEP), Florida
Department of Community Affairs (FDCA), South Florida Water Management
District (SFWMD), Florida Fish and Wildlife Conservation (FWC), and
nongovernmental environmental groups.
GOAL 206: The health and integrity of Monroe County's beach/berm resources
shall be protected and,where possible, enhanced.
Objective 206.1: Upon adoption of the Comprehensive Plan, Monroe County shall
revise the Land Development Regulations to include revised development standards
pertaining to permitted uses, siting of structures, disturbances, removal of invasive
vegetation, and restoration of native vegetation in undisturbed and disturbed
beach/berm areas.
Policy 206.1.1: Upon adoption of the Comprehensive Plan, Monroe County shall
implement the Permit Allocation and Point System. Monroe County shall assign a
negative point rating to developments which require disturbance of undisturbed
beach/berm areas. (See Policy 101.5.4).
Policy 206.1.2: Minimum coastal construction setbacks currently in use in Monroe
County shall be reviewed in coordination with DNR. Existing setbacks in the Land
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Development Regulations (Monroe County BOCC, 1990) shall be revised as deemed
appropriate based upon findings of this review. (See Objective 212.2 and related
policies).
Policy 206.1.3: Permitted uses within the shoreline setback along natural
shorelines characterized by beach/berm vegetation shall be limited to docks and
walkways. Access shall be restricted to wooden dune walkover structures which, in
the absence of a dock, shall terminate at the waterward toe of the dune. All
structures shall be elevated on pilings or other supports.
Policy 206.1.4: No beach/berm material shall be excavated or removed and no fill
shall be deposited on a beach/berm.
Policy 206.1.5: Clearing of beach/berm vegetation in the area landward of the
shoreline setback shall be limited to the minimum clearing required to allow
development of a permitted use. Prior to commencement of construction, the
immediate area required for construction shall be enclosed with fencing. No
vehicular or pedestrian traffic shall be permitted outside the fenced areas for the
duration of the construction period.All areas disturbed during construction shall be
managed to avoid the introduction and/or establishment of invasive exotic species.
Policy 206.1.6: Beach/berm areas disturbed during construction shall be
immediately restored to stable condition. Restoration techniques shall be designed
to achieve the maximum stability possible. Native plants shall be used exclusively in
re-vegetation.
Policy 206.1.7: Invasive exotic vegetation shall be removed from the development
site as a condition for issuance of a Certificate of Occupancy.
Policy 206.1.8: A list of invasive exotic beach/berm plants shall be prepared by the
County Biologist.
Policy 206.1.9: Existing and new outdoor lighting shall be restricted/or prohibited,
as appropriate, so as to avoid adverse impacts on beach nesting areas (See Policies
207.9.6 and 207.9.7).
Policy 206.1.10: Seawalls shall be prohibited on any beach or open water shoreline.
GOAL 207: Monroe County shall protect and conserve existing wildlife and wildlife
habitats.
Objective 207.1: By January 4, 1997, Monroe County shall adopt revisions to the
Land Development Regulations which shall protect wildlife and wildlife habitat from
adverse impacts of development.
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Policy 207.1.1: An Environmental Impact Assessment (EIA) shall be required for
major development projects. (See Goal 218 and related objectives and policies.) As
part of the EIA, the applicant shall be required to complete the following activities
related to wildlife and wildlife habitat:
1. a species survey to include, at a minimum, species of special status that are
known to inhabit biological communities similar to those existing on the site
in the project area;
2. an assessment of probable impacts on those species associated with the
proposed development; and
3. identification of measures that will avoid or lessen the identified wildlife
impact.
Monroe County shall, when deemed appropriate, incorporate the wildlife impact
avoidance measures as stipulations for the land development order.
Policy 207.1.2: Development shall be prohibited on offshore islands (including
spoil islands) which have been documented as an established bird rookery, as
identified on the current Protected Animal Species Map.
Policy 207.1.3: The Open Space Requirement for undisturbed salt marsh and
buttonwood wetlands shall be one hundred (100) percent.
Policy 207.1.4: Clustering requirements shall be revised so as to reduce habitat
fragmentation (See Policy 205.2.3).
Objective 207.2: By January 4, 1998, Monroe County shall provide guidance to
private landowners to reduce disturbances to wildlife species designated by the
FWS and the State as threatened or endangered.
Policy 207.2.1: The Monroe County Biologist, in coordination with DNR, FGFWFC,
and the FWS, shall prepare management guidelines for wildlife species designated
as threatened and endangered by the state and federal governments. To the
maximum extent possible, the County shall rely on guidelines and public educational
materials prepared by the state and federal governments. The guidelines shall
provide public education to residents and prospective developers within critical
habitat areas regarding activities disruptive or harmful to specific wildlife species.
As appropriate for each species, the guidelines shall address items such as feeding,
free-roaming domestic pets, noise, traffic, fencing, pesticide applications, etc.
Existing laws and penalties for their violation shall be identified. A separate set of
guidelines shall be developed for each species.
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Policy 207.2.2: Monroe County shall make the management guidelines for
designated wildlife species available to the general public.
Policy 207.2.3: Monroe County shall, as appropriate, incorporate specific
management guidelines for state- and federally-designated wildlife species as
stipulations for land development orders.
Objective 207.5: By January 4, 1998, Monroe County shall implement an expanded
program for mapping occurrences and habitat of species of special status. These
shall include wildlife species designated as threatened and endangered by the FWS
and those designated as threatened, endangered or species of special concern by the
FGFWFC.
Policy 207.5.1: Monroe County shall develop a list of locally rare wildlife species.
This list shall include species which are rare within the Florida Keys but which do
not have special status.
Policy 207.5.2: Monroe County shall expand and update its maps showing
occurrences of the following species:
1.wildlife species designated as threatened and endangered by the FWS;
2. wildlife species designated as threatened, endangered or species of special
concern by the FGFWFC; and
3.wildlife species designated as locally rare.
Information shall be obtained from the Florida Natural Areas Inventory data base. It
shall be entered into the County's GIS. To the extent possible, the historic
occurrence data shall be plotted on specific parcels for which the occurrences were
recorded. GIS data shall be updated annually.
Objective 207.7: Monroe County shall implement activities to prohibit the
destruction of the federally-designated Key deer (Odocoileus virginianus clavium)
and to protect its habitat.
Policy 207.7.1: Monroe County shall regulate future development and coordinate
the provision of public facilities on Big Pine Key and No Name Key, consistent with
the Goals, Objectives and Policies of this Comprehensive Plan and in order to:
1. protect the Key deer;
2. preserve and enhance the habitat of the Key deer; and
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3. maintain the rural, suburban, and open space character of Big Pine Key.
(See Future Land Use Objective 103.1 and related policies.)
Policy 207.7.3: By January 4, 1998, Monroe County shall identify Key deer habitat
areas as priority acquisition sites for conservation purposes. Emphasis shall be
placed upon acquisition of movement corridors, sources of freshwater, and
undisturbed native vegetation areas which are located within Improved
Subdivisions and which are outside of the acquisition areas identified by the FWS
(for the National Key Deer Refuge), DNR (for the Coupon Bight CARL Project), and
SFWMD (for the Big Pine Key Save Our Rivers project). Acquisition shall be
considered through the Monroe County Natural Heritage and Park Program. (See
Future Land Use Objective 102.4 and related policies).
Policy 207.7.4: By January 4, 1998, Monroe County shall meet with federal
agencies, state agencies, and private non-profit conservation organizations, to
determine how the County can support programs for acquisition of land for
conservation purposes within habitat areas of the Key deer.
Policy 207.7.6: Monroe County shall monitor FKAA compliance with federal
regulations prohibiting potable water hookups to designated habitat areas of the
Key deer (pursuant to FKAA Rules Chapter 48-7).
Policy 207.7.8: By January 4, 1998, the County Biologist shall designate Key deer
habitat on Big Pine Key, No Name Key, and other keys as appropriate, as priority
areas for enforcement of animal control laws (pursuant to Policy 207.3.1).Adequate
staff shall be provided at the animal shelter on Big Pine Key to enforce animal
control laws (determined pursuant to Policy 207.3.3).
Policy 207.7.12: By January 4, 1997, Monroe County shall meet with the FWS to
determine measures which can be taken by the County to support the FWS in
enforcing existing no feeding laws pertaining to the Key deer.
Overall the County's GOPs provide adequate protection of habitat and threatened
and endangered species. The suggested strategies below may require
comprehensive plan amendments, revisions to the MCLDC or is a programmatic
consideration.
Objective 207.13: Monroe County shall implement activities to protect the habitat
of, and to prohibit the destruction of, the federally-designated American alligator
(Alligator mississippiensis).
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D. Strategies
• Monroe County should amend Policy 101.5.4 to provide points for the
dedication for Tier IIIA-Special Protection Area (SPA) lots and wetland lots.
• Regarding abandoned mine sites, additional regulations are needed to more
fully address the environmental and public safety issues. The County should
undertake coordination with the FDEP and the SFWMD to review existing State
and local mine reclamation standards for consistency and to determine the
appropriate revisions to the County Code which will better protect the
environment and residents of the County from the impacts of mining. The
County should prepare an inventory of abandoned mining sites and, working
where possible with landowners, develop plans for the cleanup and productive
reuse of these sites.
• Given the potential for offshore oil and gas drilling to affect the County, the
County should continue to be engaged in issues related to potential drilling in
State and federal waters.
• Further improvements in sewage treatment practices are needed to improve
canal and other nearshore waters.
• Further study of the benefits and adverse impacts associated with the use of
aerators in artificial canals is needed, including evaluation of alternative aerator
technologies.
• The USEPA and the FDEP, in consultation with the National Oceanographic and
Atmospheric Administration (NOAA), were given the responsibility for
developing a comprehensive WQPP for the FKNMS. The WQPP was developed
to reverse the trend of environmental degradation and restore and maintain the
Florida Keys marine ecosystem. County should continue to participate in the
WQPP studies and monitoring projects.
• The County should prepare beach management plans for public beaches to
address problems of erosion and invasive plants.
• Numerous efforts are underway in the Florida Keys to control the proliferation
of exotic plants and animals. Since 2005, the Monroe County Land Steward has
undertaken numerous exotic plant removal projects in County-owned parcels,
using annual grant funding from the Florida Fish and Wildlife Conservation
Commission Invasive Plant Management Section. The Land Steward is a
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include the County, State and federal agencies, non-profits and public utilities.
The Task Force coordinates efforts to eliminate invasive, non-native plant and
animal species. The County should continue this partnering with the Task
Force.
• The County can continue to work cooperatively with the U.S. Fish and Wildlife
Service (USFWS), Florida Fish and Wildlife Conservation Commission (FFWCC),
and Florida Department of Agriculture and Consumer Services (FDACS) to
promote the recovery of designated wildlife species. The County can cooperate
with these agencies to locate potential introduction sites for designated species,
particularly for those which are federally- or State-listed. The County should
assist, to the extent that it is able, with acquisition of sites having known
populations of designated species. The County Biologist should participate in
development of new recovery plans and revisions to old recovery plans for
federally-designated species. When State or federal agencies undertake specific
recovery actions in the County, the County should support these activities as
appropriate through public education, law enforcement, and data collection.
• The County should coordinate with State and Federal agencies which are
developing informational brochures for use by developers and landowners
within critical habitat areas to inform them regarding activities disruptive or
harmful to specific wildlife species. As appropriate for each species, the
guidelines should address items such as feeding, free-roaming domestic pets,
noise, traffic, fencing, pesticide applications, invasive exotic species, and other
threats. Existing laws and penalties for their violation should be identified.
Guidelines should be made available to the general public.
• Regarding free-roaming domestic pets, the County Biologist should work
cooperatively with the State and Federal resource agencies to develop and
implement an animal control plan. This plan should identify areas within the
County where priority should be placed in enforcing animal control laws so as
to protect native wildlife populations, particularly listed species. These
priorities should be reviewed periodically. Monroe County should consider the
long-term staffing, facility and financial requirements to support
implementation of the plan.
• Fee title acquisition by public agencies generally guarantees the permanent
protection of conservation lands from development. However, it does not
ensure the long-term health and stability of the natural systems present on a
property. Canals, mosquito ditches, fill, and roads have altered natural
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capabilities for fire-adapted pinelands by expanding the wildland-residential
edge. This has resulted in the alteration of natural fire processes and a demand
for fire suppression. Although many wetland and upland habitats have been
restored,the County should continue restoration practices as appropriate.
• The County should continue to support the conservation efforts of State and
federal agencies by working cooperatively with resource managers at publicly-
owned refuges, parks, and special-interests sites to address adjoining lands
issues. Prescribed fire is an important tool for effectively managing and
restoring pinelands. Fire can also manage the encroachment of overstory
vegetation and restore open habitat features of coastal salt marsh and
freshwater marsh habitats. The County should continue to support the habitat
management strategies of resource agencies to include monitoring of the
effectiveness of prescribed fire treatments within the federal refuge. Such
monitoring is essential for an adaptive management process to maintain and
restore habitat. The County should continue its outreach efforts to increase the
public's awareness and understanding of this management technique.
• The County prohibits the planting of some highly invasive exotic plants
throughout the County and should continue in its efforts to educate the public
of the need to remove invasive plant materials from existing developed areas.
• Hurricanes and tropical storms and sea level rise have consequences for the
management of conservation lands. It is predicted that the Florida Keys will
experience changes from global climate change (For additional details, see the
discussion under Major Topic: "Climate Change and Hazard Mitigation),
particularly from changing temperatures in the air and water, rising sea level,
and coastal storms. Saltwater intrusion into the freshwater lens from sea level
rise and saltwater inundation of surface freshwaters from storm surges can
alter pinelands and freshwater marshes resulting in more salt-tolerant plant
communities. Species that are found only in pinelands may disappear as the
pine forests die out. Storm events can cause considerable physical damage to
beach/berm and coastal habitats. The County should continue to support the
resource agencies as they gather scientific data to understand the natural
processes and subsequent changes from sea level rise and to assist in the
development of adaptive management strategies for future conservation needs.
The County should continue cooperative efforts with the Southeast Climate
Compact.
• Long-term protection of natural resources may best be accomplished through
Lacquisition for permanent conservation purposes by the federal, State, or local
government, or by non-profit conservation organizations. While acquisition is
not a realistic solution for most lands in the Keys, it should be pursued
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and regulators to be the most ecologically sensitive and the most susceptible to
development or environmental threat, despite the protections afforded by the
Plan. However, effective management of that land after acquisition is necessary
to ensure it remains in a condition to support the viability of natural systems
being protected.
• Several anchorage sites need improved anchorage management and facilities,
including but not limited to anchoring regulations, engineered mooring fields
and pump-out facilities adjacent to liveaboard anchorages.
• The County should consider evaluating the Comprehensive Plan GOPs further to
determine if there is a need for additional revisions or programs/projects. The
evaluation consider the effectively and the implementation status of the
policies. For example, are the action items under Goal 207 no longer applicable
since the implementation of the habitat evaluation index, what is their status
(adopted, incorporated or deleted)? Were they reinitiated with all the FEMA
documents?
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Issue Category#1(c): Wetlands
A. Background: The biological communities of the Florida Keys include five
wetland types which provide important storm protection,water quality protection,
and wildlife habitat functions. These wetland communities include:
• mangrove forests along the shorelines of the Keys;
• transitional wetlands (salt marsh and buttonwood wetlands) lying landward of
the mangrove fringe and oceanward of upland communities;
• salt ponds occupying shallow enclosed basins having very restricted tidal
influence;
• beaches13; and
• freshwater wetlands and freshwater ponds in areas of freshwater lenses in the
Lower Keys.
Map Series 3.3, located in the Map Atlas, depicts the wetlands within the Upper,
Middle, and Lower Keys and selected offshore islands, which are characterized by
mangrove forests, salt marsh,buttonwood wetlands, salt ponds, and freshwater
wetlands (disturbed wetlands are not mapped).
B. Analysis: Wetlands in the Florida Keys are regulated by federal and State
agencies, and by the County's Plan and the LDCs. A permit is required for certain
activities within wetlands, as defined by these agencies. The primary federal
jurisdiction for the USACE over wetlands is derived from Section 404 of the Clean
Water Act, 33 U.S.C. 1344, 1972, as amended in 1977, 1981, and 1987, with the
Water Quality Act. Other programs are Section 10 the Rivers and Harbors Acts of
1899, which regulates construction, excavation, or fill in navigable waters; the
National Environmental Policy Act of 1969; and the Endangered Species Act(ESA) of
1973. Under the Marine Protection, Research, and Sanctuaries Act, a permit is
required for the transportation of dredged material that is to be deposited in the
ocean. Disposal sites are selected with criteria developed by USEPA and the USACE.
The federal regulations are contained in 33 CFR 320-330 and have evolved over
time to reflect added authorities and developing case law.
The Clean Water Act Section 404(b)(1) Guidelines (40 CFR, Part 230), USACE
Regulations (33 CFR Part 332), and associated guidance require that project effects
13 Beaches are not considered to be traditional wetlands under State and Federal definitions since
they are located in the high wave energy zone; thus, they do not have wetland soil features nor are
they vegetated (although mud flats would meet State and Federal definitions of wetlands). However,
beaches (as part of the beach/berm community) are protected by the Comprehensive Plan and the
LDCs and by State and Federal regulations when they are below the mean high water line. Thus,
beaches are mentioned in this section. Beaches are more fully described in Section 3.10
(Beach/Berm Communities).
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to waters of the United States, including wetlands, be addressed through a sequence
of avoidance, minimization and then compensation for unavoidable impacts.
In 2008, the USACE Rules 33 CFR Parts 325 and 332 and USEPA Rules 40 CFR Part
230 were finalized accounting for "Compensatory Mitigation for Losses of Aquatic
Resources." This sequence is also followed by State agencies prior to permit
issuance [Rule 40E-4.091 (1)(a) F.A.C. (Basis of Review)].
Both FDEP and SFWMD have permitting authority over impacts to wetlands under
State law. A memorandum of agreement between the two agencies divides the
types of projects applying for permits between the two agencies. Most relevant to
private-sector development, all residential projects in excess of four units and all
commercial projects receive permits from the SFWMD, and smaller residential
projects receive permits from FDEP. Transportation projects (road and air) also fall
under SFWMD permitting authority, whereas FDEP permits projects limited to
beach and shoreline impacts with no associated upland residential or commercial
development.
SFWMD also regulates the management and storage of surface waters, including
dredging or filling in wetlands, by requiring Environmental Resource Permits (ERP).
Pursuant to Chapter 373, F.S. and Chapter 40E, F.A.C. Any proposed surface water
management system involving a project site 100 acres or more in size or with more
than 1 acre of wetland impacts would require an Individual Permit. In most cases,
project sites less than 100 acres in size with less than 1 acre of wetland impacts
qualify for a Standard General, Noticed General, or No Notice General Permit.
FDEP also oversees activities in wetlands that are:
• located on Florida's natural sandy beaches facing the Atlantic Ocean, the Gulf of
Mexico,the Straits of Florida or associated inlets;
• activities that extend seaward of the mean high water (MHW) line (the SFWMD
oversees activities landward of the MHW);
• activities that extend into sovereign submerged lands; and
• activities that are likely to affect the distribution of sand along a beach.
FDEP also regulates activities including beach restoration or nourishment;
construction of erosion control structures such as groins and breakwaters; public
fishing piers; maintenance of inlets and inlet-related structures; and dredging of
navigation channels that include disposal of dredged material onto the beach or in
the nearshore area.
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Prior to the permitting process, a wetland Jurisdictional Determination (JD) is
required. Wetland boundaries are determined by:
• The USACE Interim Regional Supplement to the 1987 Wetland Delineation
Manual:Atlantic and Coastal Plain Region (Federal Manual); and
• Chapter 62-340 F.A.C., "Delineation of the Landward Extent of Wetlands and
Surface Waters".
The Federal Manual is the current accepted methodology developed jointly by the
USACE,the USEPA, USFWS, and the USDA NRCS. Wetland boundaries are verified by
the regulatory agencies and then the boundaries are usually instrument surveyed.
The permit application is a joint application to the State agencies (SFWMD and
FDEP) and the USACE. The State ERP authorizes all activities permitted by SFWMD
and FDEP; the USACE would issue its own permit.
In general, wetlands in the County are protected by the LDCs and by the County's
Plan policies as "environmentally sensitive lands." However,this term is not defined
in the LDCs or in the Plan. For example, Section 114-3 (Surface Water Management
Criteria) of the LDCs establishes procedures to assist in the protection of the water
resources, including the reservoir of freshwater on Big Pine Key and the nearshore
waters. These include existing and proposed water management systems.
Stormwater management systems are coordinated with SFWMD and FDEP. Another
example is contained in Section 118-4 (Wetland Open Space Requirements) which
states that no development activities, with some exceptions, are permitted in
mangroves, freshwater wetlands and in undisturbed saltmarsh and buttonwood
wetlands. The open space requirement in these habitats is 100 percent (no filling or
clearing is allowed). Undisturbed freshwater wetlands, salt marsh and/or
buttonwood association wetlands are considered to be habitats with the highest
sensitivity and development under the LDCs requires clustering in areas with lowest
sensitivity [Section 118-7 (General Environmental Design Criteria)]. Sec. 118-10
(Environmental Design for Specific Habitat Types) specifies design criteria for
mangroves,wetlands, and submerged lands.
In practice, all proposed developments are required to obtain State and federal
permits for activities that would alter jurisdictional wetlands. The State of Florida
mandates that all State agencies and local governments use the Uniform Mitigation
and Assessment Method (UMAM) for evaluation of all wetland impacts and
mitigation measures (Section 373.414(18), F.S. and Chapter 62-345, F.A.C).
Wetlands are evaluated for existing conditions and mitigation requirements are
determined for the proposed impacts by using UMAM. In the Florida Keys, a specific
wetlands evaluation procedure was developed called the Keys Wetland Evaluation
Procedure (KEYWEP). It was developed as part of the Advanced Identification of
Wetlands [see Section 3.9.2 (Monroe County Advance Identification of Wetlands
(ADID) Program)]. The LDCs mandate the use of KEYWEP only for lands classified
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as disturbed with salt marsh and buttonwood association [Section 118-10
(Environmental Design For Specific Habitat Types)].
Because disturbed salt marsh and buttonwood wetlands are the only wetland
habitats that are developable under current LDRs, this is the only situation where
KEYWEP is mandated for use in the Florida Keys. However, certain salt marsh and
buttonwood wetlands that are determined by KEYWEP to have moderate or low
functional capacity (KEYWEP index of 7.0 or less) are "suitable for filling with
appropriate mitigation," if also authorized by FDEP and USACE permits. KEYWEP
should continue to be used to determine if a proposed wetland impact is
permittable. If a proposed impact is permittable, mitigation would be determined in
accordance with UMAM. Prior to the mandated use of UMAM in Florida, KEYWEP
(under the federal ADID program) was used by the USACE but only for those
projects that proposed to use the Keys Environmental Restoration Fund (KERF) as
mitigation for mangrove, saltmarsh, and buttonwood wetland impacts and for
seagrass impacts. The USACE continues to accept mitigation through KERF and
determines the required mitigation using KEYWEP. .
Wetlands are also protected under the Plan and the LDCs by setbacks and buffers
adjacent to existing or proposed development. In general, setbacks are determined
by State and federal permits. Under the LDCs, the buffer between a wetland and the
proposed development is generally 50 feet with some exceptions that allow a buffer
of 25 feet [(Section 118-10(4)(g)]. The point from which the setback is applied is
not specified in the LDCs.
The Florida Keys Advance Identification of Wetlands (ADID) Program was a joint
effort of the USEPA, USACE, and the County. The ADID program was designed to
facilitate the permitting process under Section 404 of the Clean Water Act by
providing comprehensive wetlands mapping and assessment information. The
scope of the ADID Program included the entire Florida Keys, prioritized as follows:
• Privately-owned lands with development potential on the islands connected
by U.S. 1;
• Publicly-owned lands on the islands connected by U.S. 1; and
• Offshore islands.
The Florida Keys ADID project included mapping of marine and freshwater
wetlands throughout the Keys. Wetlands were mapped at the seasonal high water
line, although this boundary was based on the interpretation of aerial photographs.
A field-based wetland functional assessment methodology specific to the Florida
Keys was developed (KEYWEP). The KEYWEP methodology is presented in
"Technical Summary Document for the Advance Identification of Wetlands of the
Florida Keys" (Kalla, 2000). The ADID project mapped approximately 65,000 acres
of marine and freshwater wetlands and conducted a functional evaluation of these
wetlands. The evaluation separated those wetlands that were "generally
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unsuitable" for the placement of fill and those wetlands that were "generally
suitable with appropriate mitigation" for the placement of fill (Kalla, 2000). The
ADID maps produced are available in the County Office of Planning and
Environmental Resources.
The map series produced for the ADID program was produced on hand-drawn maps
that were then digitized. The analysis of the data for the inventory of natural
habitats for this Technical Document revealed that the ADID data did not
correspond to the other databases (i.e., the maps did not line up exactly). The ADID
data can be useful for an individual parcel to determine if it contains a wetland with
a KEYWEP score but, because of the mapping limitations,the ADID data could not be
used on a County-wide basis.
C. Policy Framework:
Policy 101.13.4: In conjunction with the evaluation of the existing TDR program
pursuant to Policy 101.13.2, parcels within the following habitats and land use
districts shall be designated as sender sites for Transferable Development Rights
(TDRs): Habitat of the following types which lie within any zoning category:
Freshwater wetlands, Saltmarsh/Buttonwood wetlands, Disturbed Wetlands.
Objective 102.1: Upon adoption of the Comprehensive Plan, Monroe County shall
require new development to comply with environmental standards and
environmental design criteria which will protect disturbed wetlands, native upland
vegetation and beach/berm areas.
Policy 102.1.1: The County shall protect submerged lands and wetlands. The open
space requirement shall be one hundred (100) percent of the following types of
wetlands: 1. submerged lands 2. mangroves 3. salt ponds 4. fresh water wetlands S.
fresh water ponds 6. undisturbed salt marsh and buttonwood wetlands Allocated
density (dwelling units per acre) shall be assigned to freshwater wetlands and
undisturbed salt marsh and buttonwood wetlands only for use as transferable
development rights away from these habitats. Submerged lands, salt ponds,
freshwater ponds, and mangroves shall not be assigned any density or intensity.
Objective 102.2: Upon adoption of the Comprehensive Plan, Monroe County shall
adopt revisions to the Environmental Standards (Section 9.5-335) and
Environmental Design Criteria (Section 9.5-345) of the Land Development
Regulations. These revisions will require new development to further protect
disturbed wetlands, native upland vegetation and beach/berm areas.
Policy 102.2.1: Monroe County shall adopt revised environmental standards and
environmental design criteria as indicated in Conservation and Coastal Management
Policy 204.2.6. These revised standards and criteria will eliminate the net loss of
disturbed wetlands. Where possible, on-site mitigation shall be required in order to
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offset any loss of disturbed wetlands by requiring revegetation of an area equal or
greater in size than the area proposed for fill. If on-site mitigation is not possible,
restoration fees shall be paid pursuant to a wetlands restoration fund.
Policy 102.4.2: The Land Authority and the Growth Management Division shall
identify the types of lands which shall be considered for acquisition. These shall
include, at a minimum: 1. designated Tier I (Natural Areas) lands as defined in
Policy 105.2.1.1, which shall include all contiguous hammock or pineland areas
above four acres in area; 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 that are required open space
under Policy 102.1.1.
Policy 102.4.3: The Land Authority and Growth Management Division shall develop
a priority list of acquisition sites. This list shall be updated annually with public
input. In formulating this list,the County shall prioritize Tier I lands over Tier II (Big
Pine Key and No Name Key) and Tier III lands. Outside the boundaries of Tier I, land
with fragmented hammocks or pinelands of greater than one-acre in area and
wetlands identified in Policy 102.4.2, 2 shall be the second highest priority for
acquisition. Acquisition of 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 shall also be a top priority.
Policy 102.4.4: The Monroe County Land Acquisition Master Plan shall contain an
acquisition financing plan which identifies sources of funding for acquisition of
lands on the Priority List. Land acquisition will be a coordinated effort between the
state and federal governments and the County. The County shall petition the state
and federal government to accept primary responsibility for acquisition of Tier I,
conservation and natural lands. The County shall be responsible for purchases in
Tier II (Big Pine Key and No Name Key) and in Tier III of wetlands and fragmented
hammock or pineland areas of one-acre or greater. Land acquisition for other
priorities depends upon funding availability, need and future use.
GOAL 203: The health and integrity of living marine resources and marine habitat,
including mangroves, seagrasses, coral reefs and fisheries, shall be protected and,
where possible, enhanced.
Objective 203.1: Monroe County shall protect its mangrove wetlands by
implementing regulations which will further reduce disturbances to mangroves and
which will mitigate the indirect impacts of development upon mangroves. [9J-
5.012(3)(b)1; 9J-5.013(2)(b)3 and 4]
Policy 203.1.1: As set forth in the Land Development Regulations (Monroe County
BOCC, 1990), the open space requirement for mangroves shall be one hundred
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(100) percent. No fill or structures shall be permitted in mangrove wetlands except
for elevated, pile-supported walkways, docks, piers and utility pilings.
Policy 203.1.3: Monroe County shall require minimum vegetated setbacks of fifty
(50) feet to be maintained as an open space buffer for development occurring
adjacent to all types of wetlands except for tidally inundated mangrove fringes and
as provided for in Policy 204.2.2, 204.2.3 and 204.2.4. If a 50-foot setback results in
less than 2,000 square feet of principal structure footprint of reasonable
configuration, then the setback may be reduced to allow for 2,000 square feet of
principal structure footprint of reasonable configuration, provided that the setback
is not reduced to less than twenty-five (25) feet. On properties classified as scarified
adjacent to wetlands, the wetland setback may be reduced to twenty-five (25) feet,
without regard to buildable area, if the entire setback management plan in
accordance with County regulations approved by the County Biologist and placed
under conservation easement. "Development" shall include all activities as currently
defined in the F.S. 380.05-compliant Land Development Regulations, hereby
incorporated by reference. The effectiveness of this policy shall be reviewed during
the Evaluation and Appraisal Review (EAR) Process.
GOAL 204: The health and integrity of Monroe County's marine and freshwater
wetlands shall be protected and, where possible, enhanced.
Objective 204.1: By January 4, 1998, Monroe County shall develop an information
system to be used as the basis for regulating land development activities in wetland
areas, to identify potential wetland restoration sites, and to identify high quality
wetland sites for possible future acquisition by the County, State and/or private
non-profit conservation organizations.
Policy 204.1.1: Monroe County shall participate in the Florida Keys Advance
Identification of Wetlands (ADID) Program. This program is designed to facilitate
the regulatory process under Section 404 of the Clean Water Act of 1973 by
providing comprehensive wetlands mapping and assessment information. The
proposed geographic scope of the ADID Program includes the entire Florida Keys,
prioritized as follows:
1. privately-owned lands with development potential on the islands
connected by U.S. 1;
2. publicly-owned lands on the islands connected by U.S. 1; and
3. offshore islands (which appear in imagery of the islands connected by US
1).
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As part of the ADID Program, Monroe County shall:
1. inform and educate the public regarding wetlands protection and the
application of information forthcoming from the ADID Program;
2. retain a consultant to map preliminary ACOE and DER jurisdictional lines;
3. compile wetlands mapping information on the County's geographic
information system;
4. assist with development of a Florida Keys wetlands functional quality
analysis;
S. assist with the functional assessment of wetlands;
6. assist with ground-truthing mapped information; and
7. assist with preparing a draft Technical Support Document.
Policy 204.1.2: Monroe County shall cooperate with the Florida Game and Fresh
Water Fish Commission (FGFWFC) in its ongoing effort to map freshwater wetlands
and disturbed wetlands in the Lower Keys.
Policy 204.1.3: Monroe County shall use the refined, up-to-date wetlands
information made available from the ADID Program and from the FGFWFC to
generate a new set of wetlands maps. These wetlands maps shall replace those
currently in use by the County. In order to prepare the new wetlands maps, Monroe
County shall compile information obtained from the ADID Program and from the
FGFWFC in the Geographic Information System (GIS). The new composite map set
shall be plotted by the GIS at a scale of 1"=200'. The maps and/or overlays shall
show:
1. all undisturbed and disturbed marine and freshwater wetlands by
vegetative cover type;
2. advisory ACOE and DER jurisdictional lines mapped as part of the ADID
Program; and
3. wetland "suitable/unsuitable" designations with respect to ACOE Section
404 permitted activities mapped as part of the ADID Program (See Policy
204.1.3). [9J-5.013(2)(c)9]
Policy 204.1.4: As part of the ADID Program, Monroe County shall cooperate with
the EPA, ACOE, FGFWFC, SFWMD and FWS to develop a wetlands functional
assessment protocol. This assessment protocol shall be tailored for use in the
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Florida Keys and shall be based upon habitat suitability, water quality, and flood
flow alteration functions of marine and freshwater wetlands.
Policy 204.1.5: As part of the ADID Program, Monroe County, EPA, FWS, and
FGFWFC will jointly carry out the functional analysis of wetlands. This shall be
completed on all wetland vegetative cover areas within improved subdivisions and
on selected sites outside improved subdivisions, according to statistically valid
selected sample locations for each wetland vegetative cover type. In addition to the
functional analysis, the field team shall ground-truth the wetland vegetative cover
maps using a differential global positioning system. The wetland vegetative cover
boundaries in the GIS shall be revised to reflect results of the ground-truthing (See
Policy 204.1.1).
Policy 204.1.6: By September 30th of each year, Monroe County shall update the
wetlands data in the Geographic Information System to reflect information obtained
during wetlands permitting and wetland impact mitigation during the preceding
year.
Objective 204.2: Monroe County shall eliminate the loss of undisturbed wetlands
and shall eliminate the net loss of disturbed wetlands. [9J-5.012(3)(b)1; 9J-
5.013(2)(b)3]
Policy 204.2.1: To protect submerged lands and wetlands the open space shall be
100 percent of the following types of wetlands:
1. submerged lands;
2. mangroves;
3. salt ponds;
4. freshwater wetlands;
S. freshwater ponds; and
6. undisturbed saltmarsh and buttonwood wetlands.
Allocated density (dwelling units per acre) shall be assigned to freshwater wetlands
and undisturbed salt marsh and buttonwood wetland only for use as transferable
development rights away from these habitats. Submerged lands, salt ponds,
freshwater ponds and mangroves shall not be assigned any density or intensity.
Policy 204.2.2: No structures shall be permitted in submerged lands, mangroves,
salt ponds, or wetlands, except for elevated, pile-supported walkways, docks, piers
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and utility pilings. No fill shall be permitted in submerged lands, mangroves, salt
ponds, or wetlands except:
1. as specifically allowed by Objective 212.6 and subsequent Policies;
2. to fill a manmade, excavated water body such as a canal or swimming pool
if the Director of Environmental Resources determines that such filling will
not have a significant adverse impact on marine or wetland communities; or
3. as needed for shoreline stabilization or beach renourishment projects with
a valid public purpose that furthers the goals of the Monroe County
Comprehensive Plan, as determined by the Directors of Planning and
Environmental Resources. All such projects shall require approval by the
Florida Department of Environmental Protection and the U.S. Army Corps of
Engineers prior to the issuance of a County building permit.
Policy 204.2.3: No fill or structures shall be permitted in mangroves or wetlands
except as allowed by Policy 204.2.2 (as amended) and for bridges extending over
mangroves or wetlands that are required to provide automobile or pedestrian
access to dwelling units located on upland areas within the same property for which
there is no alternative means of access. Such bridges shall be elevated on pilings
such that the natural movement of water, including volume, rate and direction of
flow shall not be disrupted or altered. Upland areas shall include disturbed wetlands
that have been lawfully converted into uplands through filling.
Policy 204.2.4: Notwithstanding other provisions of this comprehensive plan
regarding disturbed wetlands, no development activities shall be allowed in
wetlands pending completion of the ADID program (referenced in Policy 204.1.1
above) or other similar functional assessment of disturbed wetlands in the County.
No later than January 4, 1999, the ADID or other similar revised program shall
assess the functional value of disturbed wetlands in the County and develop an
evaluation index to determine the appropriate level of development for disturbed
wetlands. Upon completion and adoption of the functional assessment, it shall be
incorporated into the plan, along with a functional definition of disturbed wetlands,
by plan amendment.
Policy 204.2.6: Monroe County shall adopt revised environmental standards and
environmental design criteria which establish minimum vegetated setbacks of fifty
(50) feet to be maintained as an open space buffer for development occurring
adjacent to all types of wetlands except for tidally inundated mangrove fringes and
as provided for in Policies 204.2.2, 204.2.3, and 204.2.4. If a 50-foot setback results
in less than 2,000 square feet of principal structure footprint of reasonable
configuration, then the setback may be reduced to allow for 2,000 square feet of
principal structure footprint of reasonable configuration, provided that the setback
is not reduced to less than twenty-five (25) feet. On properties classified as scarified
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adjacent to wetlands, the wetland setback may be reduced to twenty-five (25) feet,
without regard to buildable area, if the entire setback area is planted and
maintained in native vegetation with a site-suitable stormwater management plan
in accordance with County regulations approved by the County Biologist and placed
under conservation easement. "Development" shall include all activities as currently
defined in the F.S. 380.05-compliant Land Development Regulations, hereby
incorporated by reference. The effectiveness of this policy shall be reviewed during
the Evaluation and Appraisal Review (EAR) Process.
Policy 204.2.10: By January 4, 1998 or upon completion of the functional
assessment of wetlands in the ADID program, Monroe County shall revise the land
development regulations to include additional environmental standards pertaining
to open space ratios, permitted uses, filling, and setbacks as may be deemed
appropriate to protect wetland habitats.
Objective 2043: By January 4, 1998, Monroe County shall initiate a program to
restore disturbed marine and freshwater wetlands. (See Goal 210 and related
objectives and policies)
Policy 204.3.1: The Monroe County Growth Management Division shall be
responsible for coordinating with other agencies in developing and administering
the wetlands restoration program.
Policy 204.3.2: A list of publicly-owned priority wetland restoration sites shall be
drafted and updated every other year. This list shall be developed by Monroe
County in consultation with representatives of the ACOE, EPA, FWS, DER, DNR,
FGFWFC, and others as appropriate. Priority wetland restoration sites shall be those
disturbed wetlands offering the greatest potential increase in functional value after
mitigation, as determined in the Florida Keys ADID Program.
Policy 204.3.3: Monroe County shall work cooperatively with the ACOE, EPA, FWS,
DER, DNR, FGFWFC, and others as appropriate, to determine funding sources to
support the wetlands restoration program.]
Policy 204.3.4: A wetlands restoration fund shall be established. This fund shall
include, at a minimum:
1. restoration fees paid by landowners developing in disturbed salt marsh
and buttonwood wetlands; and
2. fines collected by the Environmental Crimes Task Force for wetlands
violations.
If possible, additional funds shall be obtained for the fund from state and federal
agencies through fees, fines and/or special programs.
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Objective 204.4: By January 4, 1998, Monroe County shall establish a program for
acquiring high quality undisturbed salt marsh and buttonwood wetlands. (See
Future Land Use Objective 102.4 and related policies.)
Policy 204.4.1: The Monroe County Growth Management Division in coordination
with the Monroe County Land Authority and other federal and state agencies will
continue with wetlands acquisition through Florida Forever program, and other
funding mechanisms such as the Monroe County Land Acquisition Fund.
Policy 204.4.2: A list of priority wetlands acquisition sites shall be drafted and
updated annually. This list shall be developed by Monroe County in consultation
with representatives of the ACOE, EPA, FWS, DER, DNR, FGFWFC, and others as
appropriate. Priority wetland acquisition sites shall include the following:
1. wetlands having the greatest functional value as determined in the Florida
Keys ADID Program;
2. wetlands which are documented habitat of species of special status;
and/or
3. undisturbed and disturbed wetlands located within Improved Subdivisions.
Policy 207.1.3: The Open Space Requirement for undisturbed salt marsh and
buttonwood wetlands shall be one hundred (100) percent. (See Policy 204.2.1).
Policy 207.12.5: By January 4, 1997, Monroe County shall adopt revisions to the
Land Development Regulations which shall establish the open space requirement
for undisturbed salt marsh and buttonwood wetlands at one hundred (100) percent.
(See Policy 204.2.1).
Policy 207.13.1: By January 4, 1997, Monroe County shall adopt revisions to the
Land Development Regulations which shall continue to establish the open space
requirement for freshwater ponds and freshwater wetlands at one-hundred (100)
percent(Monroe County BOCC, 1990). (See Policy 204.2.1)
Policy 207.13.2: By January 4, 1998, Monroe County shall meet with the FWS, DNR
and SFWMD to determine how Monroe County can support acquisition of
freshwater wetlands and critical recharge areas in the Lower Keys by FWS, DNR,
and SFWMD.
Policy 207.13.3: By January 4, 1998, Monroe County shall identify additional
privately-owned lands with freshwater wetlands (not within the acquisition areas of
the FWS, DNR or SFWMD) which provide important alligator habitat as priority
acquisition sites for conservation purposes.Acquisition shall be considered through
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the Monroe County Natural Heritage and Park Program. (See Future Land Use
Objective 102.4 and related policies).
GOAL 210: Monroe County shall restore, where practicable, disrupted marine,
wetland, beach/berm, and native upland vegetation systems on County-owned
public lands.
Objective 210.1: By January 4, 1998, Monroe County shall initiate a program to
restore and maintain disrupted marine, wetland, beach/berm and native upland
vegetation systems on Monroe County public lands.
Policy 210.1.1: Priority wetland restoration sites shall be drafted and updated
every other year. This list shall be developed by Monroe County in consultation with
representatives of the ACOE, EPA, FWS, DER, DNR and FGFWFC. Priority wetland
restoration sites shall be those disturbed wetlands having the greatest functional
value as determined in the Florida Keys Advance Identification of Wetlands
Program.
Policy 215.2.3: No public expenditures shall be made for new or expanded facilities
in areas designated as units of the Coastal Barrier Resources System, saltmarsh and
buttonwood wetlands, or offshore islands not currently accessible by road, with the
exception of expenditures for conservation and parklands consistent with natural
resource protection, and expenditures necessary for public health and safety.
Policy 217.4.2: No public expenditures shall be made for new or expanded facilities
in areas designated as units of the Coastal Barrier Resources System, undisturbed
saltmarsh and buttonwood wetlands, or offshore islands not currently accessible by
road, with the exception of expenditures for conservation and parklands consistent
with natural resource protection, and expenditures necessary for public health and
safety.
Policy 901.5.7: Pending the completion and implementation of the ADID or other
similar functional analysis, Monroe County shall prohibit the use of OSDS in
buttonwood, salt marsh or wetland area and require the provision of a buffer
between OSDS and wetlands. Following the completion of the ADID or other similar
revised functional analysis, but no later than January 4, 1999, Monroe County shall
determine whether OSDS may be used in disturbed wetlands based on functional
assessment and shall adopt Land Development Regulations to further implement
this policy.
Policy 1101.2.1: By January 4, 1997, Monroe County shall adopt a Stormwater
Management Ordinance. This ordinance shall establish level of service standards for
the quality and quantity of stormwater discharges. The ordinance shall encourage
use of site-specific natural drainage features to the maximum extent possible before
utilizing structural stormwater control. The protection of freshwater lens recharge
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areas, and associated freshwater wetlands where identified, shall be of primary
concern in design of a development project.
Policy 1201.3.9: Park master plans shall identify areas of disturbed wetlands as
potential wetlands mitigation sites. (See Conservation and Coastal Management
Objective 204.3 and related policies).
Policy 1201.11.5: Park management plans shall identify areas of disturbed
wetlands as potential wetlands mitigation sites. (See Conservation and Coastal
Management Element Policy 204.3.2.).
Objective 1301.6 Monroe County shall establish or maintain mechanisms of
coordination and cooperation to ensure the protection and restoration of wetlands.
Policy 1301.6.1: Monroe County shall participate in the Florida Keys Advance
Identification of Wetlands (ADID) Program.
Policy 1301.6.2: As part of the ADID Program, Monroe County shall continue to
cooperate with the EPA, the U.S. Army Corps of Engineers (ACOE), the Florida Game
and Fresh Water Fish Commission (FGFWFC), and the U.S. Fish and Wildlife Service
(USFWS) to develop a wetlands functional assessment protocol. This assessment
protocol shall be tailored for use in the Florida Keys and shall be based upon habitat
suitability, water quality, and flood flow alteration functions of marine and
freshwater wetlands.
Policy 1301.6.3: As part of the ADID Program, Monroe County, EPA, USFWS, and
FGFWFC will jointly carry out the functional analysis of wetlands. This shall be
completed on all wetland vegetative cover areas within improved subdivisions and
on selected sites outside improved subdivisions, according to statistically valid
selected sample locations for each wetland vegetative cover type.
Policy 1301.6.4: Monroe County shall work cooperatively with the ACOE, EPA, DER,
DNR, FGFWFC, and others as appropriate, to determine funding sources to support
the wetlands restoration program.
Policy 1301.6.5: Monroe County shall cooperate with the FGFWFC in its effort to
map freshwater wetlands and disturbed wetlands.
Policy 1301.6.6: The Monroe County Growth Management Division in conjunction
with the Monroe County Land Authority and other federal and state agencies will
develop and administer the wetlands acquisition program as part of the Monroe
County Land Acquisition Master Plan.
Policy 1401.2.2 No public expenditures shall be made for new or expanded
facilities in areas designated as units of the Coastal Barrier Resources System,
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undisturbed saltmarsh and buttonwood wetlands, or offshore islands not currently
accessible by road, with the exception of expenditures for conservation and
parklands consistent with natural resource protection, and expenditures necessary
for public health and safety.
D. Strategies:
• The Comprehensive Plan and LDCs should be revised to (1) provide a definition
of wetlands that is consistent with the State definition and provide a definition of
wetland boundaries that is the same as those established through wetland
jurisdictional determinations; and (2) specify setbacks from wetlands that are
based on the jurisdictional wetland boundary line; and and the functional value
of the wetland.
• The Comprehensive Plan and LDCs should be revised to provide a definition of
"environmentally sensitive lands"and "native upland vegetation."
• Monroe County should conduct a review and evaluation of the Keys Wetland
Evaluation Procedure (KEYWEP). The County should explore if the use of
KEYWEP is appropriate and is consistent with State law in determining whether
the County will authorize impacts to wetlands. The KEYWEP is a tool to evaluate
wetlands in the Keys. The KEYWEP is a living document and process. It was
developed in the early 1990's and requires ongoing updates to remain current.
The KEYWEP data is outdated in many areas, especially areas that have
undergone significant development. In order to maintain relevance, current
KEYWEP analysis should be conducted on parcels proposed for development by
qualified biologists. The County should consider establishing a process to allow
for the updating of KEYWEP scores.
• Monroe County should update the methodology utilized to determine mitigation
requirements for impacts to wetlands. The County should consider utilizing the
Uniform Mitigation Assessment Method (UMAM).
• The map series for the Advance Identification of Wetlands (ADID) program was
produced on hand-drawn maps that were then digitized. The analysis of the
data for the inventory of natural habitats for the Technical Document revealed
that the ADID data did not correspond to the other databases (i.e., the maps did
not line up exactly). The ADID data can be useful for an individual parcel to
determine if it contains a wetland with a KEYWEP score but, because of the
mapping limitations, the ADID data could not be used as an inventory tool on a
County-wide basis. The County should consider revising the Comprehensive
Plan to require the use of best available data in determining habitat and plant
communities and consider re-mapping efforts if funding is available.
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• The County should provide a definition of "environmentally sensitive land" and
"disturbed saltmarsh and buttonwood wetland associations" and consider
revising the definition for "saltmarsh wetlands," "buttonwood wetlands."
Additionally, County should determine if limited impacts to other disturbed
wetland types is appropriate.
• Section 118-4 of the LDCs prohibits development activities in mangroves,
freshwater wetlands, and in undisturbed saltmarsh and buttonwood wetlands.
The Comprehensive Plan and the LDCs should be amended to include salt ponds
in this prohibition.
• Regarding freshwater wetlands, continued government acquisition of freshwater
wetlands in the Lower Keys offers the greatest opportunity for conservation of
these critical resource areas. Acquisition efforts should continue to focus on
freshwater wetlands, freshwater ponds, buffer areas, and the critical recharge
areas of the groundwater lenses which sustain freshwater flows into the wetland
habitat areas.
• The County should consider developing ROGO scoring criteria for wetlands.
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Issue Category#1(d):Land AcQuisition
A. Background: Fee title acquisition of real estate is the most effective means
of protecting environmentally sensitive lands from direct disturbances by human
activities. Components of the Plan which reduce the rate of growth and direct the
allocation of growth discourage development in many undisturbed upland
communities and habitat areas of federally-designated species. However, these
techniques do not permanently guarantee protection of these sensitive ecological
resources. Long-term protection is best accomplished through acquisition for
permanent conservation purposes by the federal, State, or local government, or by
non-profit conservation organizations.
B. Analysis: While acquisition is not a realistic solution for most lands in the
Keys, it should be pursued for those which are determined by County staff, local
scientists, and regulators to be the most ecologically sensitive and the most
susceptible to development or environmental threat, despite the protections
afforded by the Plan. However, effective management of that land is necessary to
ensure it remains in a condition to support the viability of natural systems being
protected. Unmanaged public lands tend to become used for unregulated vehicle
access, informal camping sites, dumping, and removal of protected species
(particularly native orchids and tree snails). Also, areas purchased for conservation
often contain exotic vegetation and other disturbances that require restoration
activities. The County has a land management program for County-owned
conservation lands for maintenance and restoration activities. In addition the
County has established the Monroe County Environmental Land Management and
Restoration Fund as a recurring funding source to ensure these public resources
retain their habitat functions.
Most (75 percent) of the remaining tracts of tropical hardwood hammocks in the
County (excluding incorporated areas and the mainland) are protected through
public or non-profit ownership for conservation purposes. Land acquisition efforts
have focused in recent years on the higher quality hammocks. Conservation lands
[see Section 3.18 (Areas of Special Concern to Local Government)] with significant
tropical hardwood hammock communities are located in:
o Crocodile Lake National Wildlife Refuge;
o Dagney Johnson Key Largo Hammock Botanical State Park;
o Lignumvitae Key State Botanical Site;
o National Key Deer Refuge;
o John Pennekamp Coral Reef State Park;
o Bahia Honda State Park;
o Long Key State Recreation Area;
o Great White Heron National Wildlife Refuge;
o The Nature Conservancy;
o Everglades National Park;
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o Florida Keys Land and Sea Trust's Crane Point Hammock; and
o Curry Hammock State Park.
Many parcels containing hammock that have been protected through land
acquisition programs occur as islands within developed and developing lands. This
poses management problems in terms of edge effects (e.g., trash dumping, exotic
plant infestation, exotic and feral animal control) and loss of the natural ecotone
that forms between the tropical hardwood hammocks and the adjacent community.
Both the "Key Deer Recovery Plan" (USFWS, 1999) and the "Habitat Conservation
Plan for Florida Key Deer" (Monroe County et al., 2006) identify land acquisition as
the single most important management strategy that would significantly contribute
to the successful maintenance of the key deer in its natural environment.
Approximately 69 percent of the land on Big Pine Key and No Name Key is in public
ownership of which 66 percent is managed for conservation. The main landowner
is the Federal government with 55 percent, all of which is within the National Key
Deer Refuge. The National Key Deer Refuge was established on August 22, 1957 to
protect and conserve key deer and other wildlife resources. It comprises nearly
8,983 acres of land on several islands within the refuge, as well as additional parcels
located outside the boundary administered by the refuge. The USFWS owns 52
percent of Big Pine Key and 71 percent of No Name Key. The State of Florida
purchases land under the Florida Forever program, which is administered by FDEP.
State-owned lands within the project area include the Coupon Bight Aquatic
Preserve and Preserve Buffer Lands and lands within the Coupon Bight/Key Deer
CARL project area. The Monroe County Land Authority (MCLA) purchases a wide
variety of vacant lands as directed in the Plan (Monroe County et al., 2006).
The FDEP Office of Coastal and Aquatic Managed Areas manages State-owned lands
within the Coupon Bight Aquatic Preserve and Preserve Buffer, whereas the USFWS
manages State-owned lands within the Coupon Bight/Key Deer CARL project area
under an existing lease agreement. State-owned lands (purchased by the State with
Florida Forever funds) outside of the USFWS and FDEP management boundaries are
managed by the County Land Steward. The Land Steward also manages County-
owned conservation lands which were acquired through ROGO dedications or
purchased by the MCLA. Habitat management of County lands started Keys-wide
during FY 2002-2003.
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C. Policy Framework:
Policy 101.5.4 provides for 2 points in the ROGO system for payment to the Land
Acquisition Fund.
Objective 101.6: Monroe County shall expand the Monroe County Land Authority
acquisition program to provide for the purchase of land from property owners who
have not been awarded building permit allocations in the Permit Allocation System."
Policy 101.6.1 Monroe County, the State, or other acquisition agency shall, upon a
property owner's request, purchase the property for fair market value or permit the
minimum reasonable economic use of the property."
Policy 101.6.2: By fiscal year 1998, the Monroe County Land Authority shall
dedicate a minimum of 35 percent of its annual budget each year for the purpose of
acquiring land from qualified property owners as defined by Policy 101.6.1. Funds
accumulated from this source shall be reserved for the acquisition of land from
qualified property owners, but may also be used to acquire other properties when
deemed appropriate by the Land Authority.
Policy 101.6.3: By January 4, 1998, Monroe County shall identify potential funding
sources and seek funding from state, federal, and/or private sources to be used for
acquisition of land from qualified property owners as defined by Policy 101.6.1.
Policy 101.6.4: The County will coordinate with DCA to ensure that DCA continues
to support enhanced land acquisition efforts in the Keys based on needs identified in
this comprehensive plan. This coordination shall ensure continued support of state
acquisition efforts under CARL, Preservation 2000 and the Florida Communities
Trust programs. The County encourages the Department to work at the state level to
create a dedicated acquisition fund for Tier 1 lands on Big Pine Key and No Name
Key based on the results of the Carrying Capacity Study, the requirements of the
incidental take permit and Habitat Conservation Plan and the Master Plan for Big
Pine Key and No Name Key. The County and the Department will also support
appropriate legislative changes which will have the effect of enhancing the Land
Authority efforts throughout the County, and the South Florida Water Management
District's acquisitions on Big Pine Key. Similarly, cooperation will continue with
private acquisition efforts, such as The Nature Conservancy and the Florida Land
and Sea Trust.
Policy 101.6.5: Monroe County, the state, or other acquisition agency shall pursue
land acquisition through voluntary purchase of lands from private property owners
denied a building permit through the Permit Allocation System, as the preferred
option for administrative relief pursuant to Policy 101.6.1, if the subject permit is
for development located within: 1. a designated Tier I area; 2. a designated Tier III
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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.
Objective 102.4: Monroe County in cooperation with the state and other
acquisition agencies shall prepare a Land Acquisition Master Plan by July 1, 2005
containing a strategy for securing funding, and a determination of those sources
considered appropriate for acquisition and management of conservation lands,
retirement of development rights and identification and purchase of sites for
affordable and employee housing and recreational purposes. Acquisition priorities
should be consistent with the tiered system adopted by this plan and as required by
the State Work Program in Policy 101.2.13 in order to identify lands appropriate for
voluntary purchase consistent with the comprehensive plan policies.
Objective 105.2: Monroe County shall implement with assistance of the state and
federal governments a 20-year Land Acquisition Program to: 1) secure for
conservation and passive recreation purposes remaining privately-owned
environmentally sensitive lands; 2) retire development rights on privately-owned
vacant lands to limit further sprawl and equitably balance the rights of property
owners with the long-term sustainability of the Keys man-made and natural
systems; and, 3) secure and retain lands suitable for affordable housing. This
objective recognizes the finite limits of the carrying capacity of the natural and man-
made systems in the Florida Keys to continually accommodate further development
and the need for the significant expansion of the public acquisition of vacant
developable lands and development rights to equitably balance the rights and
expectations of property owners.
Policy 105.2.1: Monroe County shall designate all lands outside of mainland
Monroe County, except for the Ocean Reef planned development, into three general
categories for purposes of its Land Acquisition Program and smart growth
initiatives in accordance with the criteria in Policy 205.1.1. These three categories
are: Natural Area (Tier 1); Transition and Sprawl Reduction Area (Tier II) on Big
Pine Key and No Name Key only; and Infill Area (Tier III). The purposes, general
characteristics, and growth management approaches associated with each tier are
as follows:
1. Natural Area (Tier I): Any defined geographic area where all or a
significant portion of the land area is characterized as environmentally
sensitive by the policies of this Plan and applicable habitat conservation plan,
is to be designated as a Natural Area. New development on vacant land is to
be severely restricted and privately owned vacant lands are to be acquired or
development rights retired for resource conservation and passive recreation
purposes. However, this does not preclude provisions of infrastructure for
existing development. Within the Natural Area designation are typically
found lands within the acquisition boundaries of federal and state resource
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conservation and park areas, including isolated platted subdivisions; and
privately-owned vacant lands with sensitive environmental features outside
these acquisition areas.
2. Transition and Sprawl Reduction Area (Tier II): Any defined geographic
area on Big Pine Key and No Name Key, where scattered groups and
fragments of environmentally sensitive lands, as defined by this Plan, may be
found and where existing platted subdivisions are not predominately
developed, not served by complete infrastructure facilities, or not within
close proximity to established commercial areas, is to be designated as a
Transition and Sprawl Reduction Area. New development is to be
discouraged and privately owned vacant lands acquired or development
rights retired to reduce sprawl, ensure that the Keys carrying capacity is not
exceeded, and prevent further encroachment on sensitive natural resources.
Within a Transition and Sprawl Reduction Area are typically found: scattered
small non-residential development and platted subdivisions with less than
50 percent of the lots developed; incomplete infrastructure in terms of paved
roads, potable water, or electricity; and scattered clusters of environmentally
sensitive lands, some of which are within or in close proximity to existing
platted subdivisions.
3. Infill Area (Tier III): Any defined geographic area, where a significant
portion of land area is not characterized as environmentally sensitive as
defined by this Plan, except for dispersed and isolated fragments of
environmentally sensitive lands of less than four acres in area, where
existing platted subdivisions are substantially developed, served by complete
infrastructure facilities, and within close proximity to established
commercial areas, or where a concentration of non-residential uses exists, is
to be designated as an Infill Area. New development and redevelopment are
to be highly encouraged, except within tropical hardwood hammock or
pineland patches of an acre or more in area, where development is to be
discouraged. Within an Infill Area are typically found: platted subdivisions
with 50 percent or more developed lots situated areas with few sensitive
environmental features; full range of available public infrastructure in terms
of paved roads, potable water, and electricity; and concentrations of
commercial and other non-residential uses within close proximity. In some
Infill Areas, a mix of non-residential and high-density residential uses
(generally 8 units or more per acre) may also be found that form a
Community Center.
Policy 105.2.2: Monroe County shall prepare an overlay map(s) designating
geographic areas of the County as one of the three Tiers in accordance with the
guidance in Policy 105.2.1, which shall be incorporated as an overlay on the zoning
map(s) with supporting text amendments in the Land Development Regulations.
These maps are to be used to guide the Land Acquisition Program and the smart
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growth initiatives in conjunction with the Livable CommuniKeys Program (Policy
101.20.1).
Policy 105.2.3: The priority for acquisition of lands and development rights under
the County's Land Acquisition Program shall be as follows: Tier I (Natural Area)-first
priority; Tier II (Transition and Sprawl Reduction Area) and patches of tropical
hardwood hammock or pinelands of one acre or greater in area within Tier III-
second priority; and Tier III (Infill Area)-third priority, except acquisition of land for
affordable housing shall also be a first priority. These acquisition priorities shall be
applied consistent with the Policy 105.2.10 that directs the focus of the County's
acquisition efforts to the acquisition or retirement of development rights of
privately owned vacant platted subdivision lots within Tiers I and II. Federal, State
and local funding will be used for purchasing privately owned vacant lands for Tier
II.
Policy 105.2.4: Monroe County shall prepare a specific data base tied to its
Geographic Information System, containing information needed to implement,
monitor, and evaluate its Land Acquisition Program, smart growth initiatives, and
Livable CommuniKeys Program.
Policy 105.2.5: Monroe County shall, in coordination with federal and state
agencies, implement a land acquisition program to acquire all remaining privately-
owned vacant lands within areas designated as a Natural Area (Tier I).
Policy 105.2.14: Monroe County shall identify and secure possible local sources to
yield a steady source of funds and secure increased funding from state and federal,
and/or private sources for the Land Acquisition Program and the management and
restoration of acquired resource conservation lands. 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, it is recognized that the
Land Acquisition Program may extend well beyond 20 years.
Objective 105.3: Monroe County shall implement its 20-Year Land Acquisition
Program and smart growth initiatives in conjunction with its Livable CommuniKeys
Program and shall make appropriate amendments to this Plan and the Land
Development Regulations including, but not necessarily limited to the residential
and non-residential permit allocation systems.
Objective 204.4: By January 4, 1998, Monroe County shall establish a program for
acquiring high quality undisturbed salt marsh and buttonwood wetlands. (See
Future Land Use Objective 102.4 and related policies.)
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Policy 204.4.1: The Monroe County Growth Management Division in coordination
with the Monroe County Land Authority and other federal and state agencies will
continue with wetlands acquisition through Florida Forever program, and other
funding mechanisms such as the Monroe County Land Acquisition Fund.
Objective 205.5: Monroe County, together with private, state, and federal agencies,
shall establish a program for acquiring native upland habitat to implement Goal 105
and the recommendations in the FKCCS. (See Future Land Use Objective 102.4 and
related policies).
Policy 205.5.1: The Monroe County Division of Growth Management shall work
cooperatively with the Monroe County Land Authority and other responsible state
and federal agencies in developing and administering the acquisition program.
Acquisition shall be undertaken to implement the Monroe County Land Acquisition
Master Plan (Objective 102.4).
Policy 207.12.2: Sites identified pursuant to Policy 207.12.1 shall be identified as
priority acquisition sites for conservation purposes. Particular emphasis shall be
placed upon acquisition of identified wetland and native upland sites which are
located within Improved Subdivisions. Acquisition shall be considered through the
Florida Forever program and other funding mechanisms such as the Monroe County
Land Acquisition Fund.
Policy 601.1.13: The Land Authority will coordinate with developers of affordable
housing projects when land acquisition proposals or donation requests are
submitted to the Land Authority. The Land Authority will acquire and donate land
for projects if they are deemed appropriate and acceptable by the Land Authority as
meeting the intent of:
1.the affordable housing provisions in the Land Authority's charter;
2.the goals, objectives and policies of this Plan; and
3. the land use designations specified on the Future Land Use Map and in the
Monroe County Land Development Regulations.
Policy 601.1.14: The Land Authority shall not list or donate lands as potential
affordable housing sites if the lands exhibit any of the following characteristics:
1. Any portion of the land lies within a known, probable, or potential threatened or
endangered species habitat, as specified on the most recent Protected Animal
Species Maps; or
2. Any portion of the land within the area to be cleared contains Habitat
Type/Habitat Quality Group 3 or 4, as specified in Policy 101.5.4, Section 6.
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D. Strategies
• The County's current strategies and regulations have adequately addressed land
acquisition and management issues within the Florida Keys. No amendments
are recommended at this time.
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Issue Category#1(e):Habitat Conservation Plan for Big Pine and No-Name Keys
A. Background: The Plan calls for an active protection program for federally
and State-listed threatened and endangered plant and animal species. Recovery
activities are proposed for each species, aimed at prohibiting its destruction and
protecting its habitat. These are dependent upon the type of habitat utilized, the
threats to that habitat, and the specific sensitivities of each species. The general
types of recovery activities include:
• assignment of negative points in the ROGO System;
• recommended habitat acquisition;
• stepped up enforcement of existing laws pertaining to free-roaming pets,
road speeds in critical habitat areas, and molesting or harming of endangered
species; and
• increased coordination of preservation efforts among the County, USFWS,
FFWCC and FDEP.
B. Analysis: Big Pine Key and No Name Key contain particularly sensitive
habitat for threatened and endangered species. Since the mid-1980s, the County
has recognized that continued growth and development on Big Pine and No Name
Keys without proper protective measures would be harmful to key deer (Odocoileus
virginianus clavium), lower keys marsh rabbit (Sylvilagus palustris hefnerl), eastern
indigo snake (Drymarchon corais couperi), and other protected animal and plant
species. Beginning in 1995, and lasting nearly ten years, Big Pine Key and No Name
Key were under a building moratorium due to the lack of concurrence with the State
of Florida transportation requirements. The moratorium placed an undue burden
on the community, so the County met with various stakeholders to seek a solution to
the problem. A solution to the insufficient level of service was realized through an
intersection improvement project, which included an additional lane on the
northbound side of U.S. 1. The USFWS agreed to allow the intersection
improvement project to proceed on the condition that the County prepare a habitat
conservation plan for Big Pine and No Name Keys. The Habitat Conservation Plan for
the Florida Key Deer and other Protected Species on Big Pine Key and No Name Key,
Monroe County, Florida (HCP) was adopted by the County on August 2004 and
accepted by the USFWS in June 2006. The HCP defines all allowed development
activities within Big Pine Key and No Name Key for the 20 year life of the plan. In
conjunction with this process, the County prepared a Livable CommuniKeys Plan
(LCP) for Big Pine and No Name Key to serve as a master plan for the area (adopted
by the County on August 18, 2004). Like the HCP, the overall goal of the LCP was to
determine the appropriate amount, type, and location of development in the project
area that would provide for community needs,while maximizing conservation of the
key deer and other covered species through appropriate avoidance, minimization,
and mitigation. The LCP serves as an addendum to the Year 2010 Comprehensive
Land Use Plan and works in concert with the HCP.
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Covering an area of approximately 7,000 acres, the HCP is a conservation strategy
that protects the habitat of the key deer, lower keys marsh rabbit, and eastern
indigo snake while allowing limited residential development, commercial
development and expansion, community and institutional facilities, and
transportation improvements on Big Pine Key and No Name Key. In addition to
protecting high quality habitat for these species, the HCP directs development
toward areas that have already been already impacted and away from prime habitat
for the covered species.
The goal of the HCP is to hold impact on the species below the "quasi-extinction"
threshold, which was defined as the probability that the number of female deer
would fall below 50 at least once over 50 years. The drafters used an assignment of
an "H"value for each type and amount of development to keep track of development
impacts on key deer and other protected species. "H" represents impact, both
primary and secondary, and was based on six factors: distance from U.S. 1, existing
housing density, existing habitat quality, proximity to deer movement corridors,
existing deer density, and water barriers. A Population Viability Analysis (PVA) was
conducted for the Key Deer in association with the HCP and estimates the likelihood
that the species will persist for a given time into the future under different
scenarios. The PVA indicated that, under the conditions prior to the implementation
of the HCP, the key deer would have a 2.2 percent chance of reaching quasi-
extinction. Based on this PVA, the drafters determined that risk of quasi-extinction
could be raised to no more than 4.2 percent. This equates to the loss of 4.2 deer a
year to human-related mortality. With the above goal, an acceptable "H" limit or
impact limit for development in Big Pine Key and No Name key is H(impact) = 1.1
over 20 years. The drafters agreed to mitigate all H (impact) at a ratio of 3:1. This
means that each parcel developed under this plan will be added to the total H
allowed over the next 20 years and the County must mitigate that H by three times
this amount. If this ratio is not maintained, development activity will be stopped
until the mitigation ratio is achieved or exceeded.
To not exceed the H(impact) = 1.1 limit, basic development limitations were set.
These limitations are outlined in general in the HCP and more specifically defined in
the LCP for Big Pine and No Name Keys. These limitations cover everything from
residential to light industrial to road widening. The following 20-year development
limitations are included in the LCP:
• new residential units limited to 200;
• new commercial limited to 47,800 square feet;
• one new major recreational and community center at the County-owned
Mariner's Resort, three additional public parks on disturbed uplands, and
expansion of the existing library;
• up to seven new pocket parks on disturbed or scarified sites within certain
subdivisions;
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• expansion of existing community organizations, such as religious institutions
and civic clubs, on certain scarified lands;
• certain new or expanded public facilities (such as projects in the Sanitary
Wastewater Master Plan, Stormwater Management Master Plan, public office
space, and emergency response), all of which are restricted to disturbed
and/or scarified areas;
• approximately 250-300 vacant lots allowed to be either be fenced or
developed with accessory uses primarily on Tier II and Tier III lands; and
• three-laning of U.S. 1 only.
If at any time during the 20 year period H(impact) = 1.1 is met or exceeded,
development activity will halt.
While these restrictions on new development help meet the goal, additional
restrictions were also required. Most of these restrictions were based on the tier
system, which reflects the increased impact based on location and development
pattern for the area. These 20-year restrictions are:
• 10 new residential permits in Tier 1 areas;
• no new fences in Tier 1 areas; and
• only residential development is allowed in Tier 1.
A complete listing of restrictions on the allowed level of development is available in
the HCP and the LCP. All applications for new residential and commercial
development will be required to apply for a ROGO/NROGO allocation.
ROGO/NROGO applications for Big Pine and No Name Key compete against each
other as a subarea to the rest of the County's ROGO/NROGO system. Allocations are
based on the overall score and date the applicant applied. Applicants are competing
for eight market rate and two affordable allocations annually. Prior to allocation
issuance, the applicant must mitigate the H value associated with the development
of the parcel. This is accomplished through land donation or fund donation to allow
the County to purchase property to maintain a 3:1 ratio for impact.
Based on the HCP, finalized in 2006, USFWS issued an Incidental Take Permit (No.
TE083411-0, issued June 9, 2006 and expires June 30, 2023) that allows the County
to continue to adversely impact endangered species on Big Pine and No Name Key
through the issuance of building permits. The development of 200 homes or no
more than 168 acres of development over a 20-year period is anticipated on Big
Pine Key and No Name Key. The HCP does not specify which properties will be
permitted or when. Because the County now has the approved HCP and Incidental
Take Permit necessary to protect listed species and their habitats, landowners
obtaining a building permit generally do not need any other permits or reviews
from the USFWS. Improvements to properties are generally allowed as long as they
are consistent with County regulations. However, projects that remove native
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vegetation or reduce key deer access to habitat, such as fences, may undergo
additional review by the County and the USFWS.
The HCP aides in the recovery of listed species on Big Pine and No Name Keys
because it directs development away from the more sensitive habitat and toward
areas that have already been impacted. Development is limited to 168 acres (with
no more than 7 acres being native habitat) of impact over a 20-year period and
mitigation is conducted at a 3:1 ratio. In total, 504 acres will be acquired, restored,
and managed for key deer, lower keys marsh rabbit, and eastern indigo snake
conservation. In addition, no development will occur in lower keys marsh rabbit
habitat within a 1,640-foot buffer to reduce the indirect effects of development
(except for about 40 acres that have already been fragmented). All unprotected
suitable marsh rabbit habitat on Big Pine and No Name Key will be targeted for
acquisition and conservation. The County will also implement a free-roaming pet
education program to reduce mortality (predation) on marsh rabbits.
Under the LDCs [Section 9.5-345 (General Environmental Design Criteria)],
clustering of development is required to reduce habitat fragmentation and to
preserve the largest possible area of contiguous undisturbed habitat (for all natural
habitat types). The LDCs also contain restrictions on the amount of land clearing,
depending on the tier designation. The County currently requires a coordination
letter from the USFWS when development is proposed in known or potential habitat
for endangered and threatened species. Under the Tier Overlay Ordinance, lands
that serve as habitat for protected species have top priority for land acquisition.
Under the current ROGO/NROGO system, development within known habitat of
threatened or endangered species receive minus 10 points.
C. Policy Framework
Note: These GOPs are also discussed in section 111. Financial Feasibility.
Policy 101.5.4(8) provides for 2 points in the ROGO system for payment to the
Land Acquisition Fund.
Objective 101.6: Monroe County shall expand the Monroe County Land Authority
acquisition program to provide for the purchase of land from property owners who
have not been awarded building permit allocations in the Permit Allocation System."
Policy 101.6.1: Monroe County, the State, or other acquisition agency shall, upon a
property owner's request, purchase the property for fair market value or permit the
minimum reasonable economic use of the property.
Policy 101.6.2: By fiscal year 1998, the Monroe County Land Authority shall
dedicate a minimum of 35 percent of its annual budget each year for the purpose of
acquiring land from qualified property owners as defined by Policy 101.6.1. Funds
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accumulated from this source shall be reserved for the acquisition of land from
qualified property owners, but may also be used to acquire other properties when
deemed appropriate by the Land Authority.
Policy 101.6.3: By January 4, 1998, Monroe County shall identify potential funding
sources and seek funding from state, federal, and/or private sources to be used for
acquisition of land from qualified property owners as defined by Policy 101.6.1.
Policy 101.6.4: The County will coordinate with DCA to ensure that DCA continues
to support enhanced land acquisition efforts in the Keys based on needs identified in
this comprehensive plan. This coordination shall ensure continued support of state
acquisition efforts under CARL, Preservation 2000 and the Florida Communities
Trust programs. The County encourages the Department to work at the state level to
create a dedicated acquisition fund for Tier 1 lands on Big Pine Key and No Name
Key based on the results of the Carrying Capacity Study, the requirements of the
incidental take permit and Habitat Conservation Plan and the Master Plan for Big
Pine Key and No Name Key. The County and the Department will also support
appropriate legislative changes which will have the effect of enhancing the Land
Authority efforts throughout the County, and the South Florida Water Management
District's acquisitions on Big Pine Key. Similarly, cooperation will continue with
private acquisition efforts, such as The Nature Conservancy and the Florida Land
and Sea Trust.
Policy 101.6.5: Monroe County, the state, or other acquisition agency shall pursue
land acquisition through voluntary purchase of lands from private property owners
denied a building permit through the Permit Allocation System, as the preferred
option for administrative relief pursuant to Policy 101.6.1, 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.
Objective 102.4: Monroe County in cooperation with the state and other
acquisition agencies shall prepare a Land Acquisition Master Plan by July 1, 2005
containing a strategy for securing funding, and a determination of those sources
considered appropriate for acquisition and management of conservation lands,
retirement of development rights and identification and purchase of sites for
affordable and employee housing and recreational purposes. Acquisition priorities
should be consistent with the tiered system adopted by this plan and as required by
the State Work Program in Policy 101.2.13 in order to identify lands appropriate for
voluntary purchase consistent with the comprehensive plan policies.
Objective 105.2: Monroe County shall implement with assistance of the state and
federal governments a 20-year Land Acquisition Program to: 1) secure for
conservation and passive recreation purposes remaining privately-owned
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environmentally sensitive lands; 2) retire development rights on privately-owned
vacant lands to limit further sprawl and equitably balance the rights of property
owners with the long-term sustainability of the Keys man-made and natural
systems; and, 3) secure and retain lands suitable for affordable housing. This
objective recognizes the finite limits of the carrying capacity of the natural and man-
made systems in the Florida Keys to continually accommodate further development
and the need for the significant expansion of the public acquisition of vacant
developable lands and development rights to equitably balance the rights and
expectations of property owners.
Policy 105.2.1: Monroe County shall designate all lands outside of mainland
Monroe County, except for the Ocean Reef planned development, into three general
categories for purposes of its Land Acquisition Program and smart growth
initiatives in accordance with the criteria in Policy 205.1.1. These three categories
are: Natural Area (Tier 1); Transition and Sprawl Reduction Area (Tier II) on Big
Pine Key and No Name Key only; and Infill Area (Tier III). The purposes, general
characteristics, and growth management approaches associated with each tier are
as follows:
1. Natural Area (Tier I): Any defined geographic area where all or a
significant portion of the land area is characterized as environmentally
sensitive by the policies of this Plan and applicable habitat conservation plan,
is to be designated as a Natural Area. New development on vacant land is to
be severely restricted and privately owned vacant lands are to be acquired or
development rights retired for resource conservation and passive recreation
purposes. However, this does not preclude provisions of infrastructure for
existing development. Within the Natural Area designation are typically
found lands within the acquisition boundaries of federal and state resource
conservation and park areas, including isolated platted subdivisions; and
privately-owned vacant lands with sensitive environmental features outside
these acquisition areas.
2. Transition and Sprawl Reduction Area (Tier II): Any defined geographic
area on Big Pine Key and No Name Key, where scattered groups and
fragments of environmentally sensitive lands, as defined by this Plan, may be
found and where existing platted subdivisions are not predominately
developed, not served by complete infrastructure facilities, or not within
close proximity to established commercial areas, is to be designated as a
Transition and Sprawl Reduction Area. New development is to be
discouraged and privately owned vacant lands acquired or development
rights retired to reduce sprawl, ensure that the Keys carrying capacity is not
exceeded, and prevent further encroachment on sensitive natural resources.
Within a Transition and Sprawl Reduction Area are typically found: scattered
small non-residential development and platted subdivisions with less than
50 percent of the lots developed; incomplete infrastructure in terms of paved
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roads, potable water, or electricity; and scattered clusters of environmentally
sensitive lands, some of which are within or in close proximity to existing
platted subdivisions.
3. Infill Area (Tier III): Any defined geographic area, where a significant
portion of land area is not characterized as environmentally sensitive as
defined by this Plan, except for dispersed and isolated fragments of
environmentally sensitive lands of less than four acres in area, where
existing platted subdivisions are substantially developed, served by complete
infrastructure facilities, and within close proximity to established
commercial areas, or where a concentration of non-residential uses exists, is
to be designated as an Infill Area. New development and redevelopment are
to be highly encouraged, except within tropical hardwood hammock or
pineland patches of an acre or more in area, where development is to be
discouraged. Within an Infill Area are typically found: platted subdivisions
with 50 percent or more developed lots situated areas with few sensitive
environmental features; full range of available public infrastructure in terms
of paved roads, potable water, and electricity; and concentrations of
commercial and other non-residential uses within close proximity. In some
Infill Areas, a mix of non-residential and high-density residential uses
(generally 8 units or more per acre) may also be found that form a
Community Center.
Policy 105.2.2: Monroe County shall prepare an overlay map(s) designating
geographic areas of the County as one of the three Tiers in accordance with the
guidance in Policy 105.2.1, which shall be incorporated as an overlay on the zoning
map(s) with supporting text amendments in the Land Development Regulations.
These maps are to be used to guide the Land Acquisition Program and the smart
growth initiatives in conjunction with the Livable CommuniKeys Program (Policy
101.20.1).
Policy 105.2.3: The priority for acquisition of lands and development rights under
the County's Land Acquisition Program shall be as follows: Tier I (Natural Area)-first
priority; Tier II (Transition and Sprawl Reduction Area) and patches of tropical
hardwood hammock or pinelands of one acre or greater in area within Tier III-
second priority; and Tier III (Infill Area)-third priority, except acquisition of land for
affordable housing shall also be a first priority. These acquisition priorities shall be
applied consistent with the Policy 105.2.10 that directs the focus of the County's
acquisition efforts to the acquisition or retirement of development rights of
privately owned vacant platted subdivision lots within Tiers I and II. Federal, State
and local funding will be used for purchasing privately owned vacant lands for Tier
II.
Policy 105.2.4: Monroe County shall prepare a specific data base tied to its
Geographic Information System, containing information needed to implement,
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monitor, and evaluate its Land Acquisition Program, smart growth initiatives, and
Livable CommuniKeys Program.
Policy 105.2.5: Monroe County shall, in coordination with federal and state
agencies, implement a land acquisition program to acquire all remaining privately-
owned vacant lands within areas designated as a Natural Area (Tier I).
Policy 105.2.14: Monroe County shall identify and secure possible local sources to
yield a steady source of funds and secure increased funding from state and federal,
and/or private sources for the Land Acquisition Program and the management and
restoration of acquired resource conservation lands. 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, it is recognized that the
Land Acquisition Program may extend well beyond 20 years.
Policy 105.2.15: Where appropriate, as part of the Livable CommuniKeys Planning
Process, Community Centers shall be designated within areas designated as Tier III
(Infill Area).A Community Center is characterized as a defined geographic area with
a mix of retail, personal service, office and tourist and residential uses (generally of
greater than 8 units per acre). Community Centers shall be designated as receiving
areas for transfer of development rights and shall receive special incentives in the
non-residential permit allocation system.
Objective 105.3: Monroe County shall implement its 20-Year Land Acquisition
Program and smart growth initiatives in conjunction with its Livable CommuniKeys
Program and shall make appropriate amendments to this Plan and the Land
Development Regulations including, but not necessarily limited to the residential
and non-residential permit allocation systems.
Objective 204.: By January 4, 1998, Monroe County shall establish a program for
acquiring high quality undisturbed salt marsh and buttonwood wetlands. (See
Future Land Use Objective 102.4 and related policies.)
Policy 204.4.1: The Monroe County Growth Management Division in coordination
with the Monroe County Land Authority and other federal and state agencies will
continue with wetlands acquisition through Florida Forever program, and other
funding mechanisms such as the Monroe County Land Acquisition Fund.
Objective 205.5: Monroe County, together with private, state, and federal agencies,
shall establish a program for acquiring native upland habitat to implement Goal 105
and the recommendations in the FKCCS. (See Future Land Use Objective 102.4 and
related policies).
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Policy 205.5.1: The Monroe County Division of Growth Management shall work
cooperatively with the Monroe County Land Authority and other responsible state
and federal agencies in developing and administering the acquisition program.
Acquisition shall be undertaken to implement the Monroe County Land Acquisition
Master Plan (Objective 102.4).
Policy 207.12.2: Sites identified pursuant to Policy 207.12.1 shall be identified as
priority acquisition sites for conservation purposes. Particular emphasis shall be
placed upon acquisition of identified wetland and native upland sites which are
located within Improved Subdivisions. Acquisition shall be considered through the
Florida Forever program and other funding mechanisms such as the Monroe County
Land Acquisition Fund.
Policy 601.1.13: The Land Authority will coordinate with developers of affordable
housing projects when land acquisition proposals or donation requests are
submitted to the Land Authority. The Land Authority will acquire and donate land
for projects if they are deemed appropriate and acceptable by the Land Authority as
meeting the intent of:
1.the affordable housing provisions in the Land Authority's charter;
2.the goals, objectives and policies of this Plan; and
3. the land use designations specified on the Future Land Use Map and in the
Monroe County Land Development Regulations.
Policy 601.1.14: The Land Authority shall not list or donate lands as potential
affordable housing sites if the lands exhibit any of the following characteristics:
1. Any portion of the land lies within a known, probable, or potential
threatened or endangered species habitat, as specified on the most recent
Protected Animal Species Maps; or
2. Any portion of the land within the area to be cleared contains Habitat
Type/Habitat Quality Group 3 or 4, as specified in Policy 101.5.4, Section
6.
D. Strategies:
• The strategies and regulations contained in the HCP and ROGO/NROGO have
adequately addressed methods of land acquisition in Big Pine and No-Name
Keys. No amendments are recommended at this time.
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Issue Category#1(t): - Water Qualitx
A. Background: Historically, development in the Keys relied on the use of
cesspits and septic tanks which provide little treatment of domestic wastewater in
porous lime rock substrates. In addition, stormwater flows untreated into
nearshore surface waters. Lack of nutrient removal from domestic wastewater and
stormwater has resulted in the addition of nutrient-rich waste waters into confined
waters and adjacent nearshore areas. The cumulative effects of these discharges
have led to water quality degradation of these inshore areas (Kruczynski, 1999).
Kruczynski (1999) provided the following summary statements on water quality
issues in the Florida Keys:
• There is a rapid exchange of groundwater and surface waters in the Keys that
is driven by tidal pumping.
• Cesspits are not appropriate for disposal of wastewater because they are
illegal, provide very little treatment, and are a health hazard. Cesspit effluent
can rapidly migrate to surface waters.
• Properly functioning septic tank systems remove very little nutrients (4
percent nitrogen, 15 percent phosphorous) from wastewater and, depending
upon their location, effluent from septic tank drainfields can rapidly migrate
to surface waters.
• Sewage discharged from cesspits and septic tanks are a source of nutrients
and human pathogens to ground and surface waters.
• Contaminants in stormwater runoff contribute substantially to the
degradation of nearshore water quality.
• Water quality problems due to on-site sewage disposal practices and
stormwater runoff have been documented in residential canals. Water
quality parameters that are degraded include nutrient enrichment, fecal
coliform contamination, and biological oxygen demand.
• Long, dead-end canal systems, deep canals of any length, and poorly flushed
basins accumulate weed wrack and other particulate matter.
• The water column of many canals over six feet deep is stratified and bottom
waters are oxygen deficient. Because they usually violate Class III Surface
Water Quality Standards, canals were excluded from Outstanding Florida
Waters (OFW) designation.
• Artificial aeration of canals does not eliminate the sources of excessive
nutrients in canal waters but may result in better mixing which may facilitate
nitrogen cycling.
• Improving flushing of degraded canal systems may improve the water quality
within the canal, but will also result in adding additional nutrients to the
adjacent waters.
• Canal systems and basins with poor water quality are a potential source of
nutrients and other contaminants to other nearshore waters.
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• Seagrass beds located near the mouths of some degraded canal systems
exhibit signs of eutrophication, such as increased epiphyte load and growth
of benthic algae.
• Vessel generated turbidity (re-suspended sediments) is a growing concern in
many areas with high boat traffic including canals and open waters.
• Aerobic treatment units and package plants provide secondary treatment,
removing 80 percent (90 percent of the total suspended solids (TSS) and
organic wastes that are responsible for biochemical oxygen demand). In poor
soil conditions with high groundwater tables, where drainfields are rendered
inefficient, secondary treatment systems are better than septic tanks at
removing organically bound nutrients associated with the TSS. These
systems, however, are not designed to remove dissolved nutrients.
• Disposal of wastewater from package treatment plants or on-site disposal
systems into Class V injection wells results in nutrient enrichment of the
groundwater. However, it is not known whether discharges into Class V
wells results in substantial nutrient loading to surface waters.
• In areas where groundwater is saline, injected wastewater is buoyant and
rapidly rises to the surface.
• Tracer studies have demonstrated rapid migration of Class V effluent to
surface waters (hours to days). These studies demonstrated that tracers
were greatly diluted before reaching surface waters and that some
phosphorus was stripped from groundwater by the substrate. The long term
ability of phosphorus stripping by the substrate is under investigation.
• Sewage discharges from vessels degrade the water quality of marinas and
other confined water anchorages.
• Florida Bay discharge, oceanic and Gulf of Mexico upwelling and currents,
rainwater and other natural sources add nutrients to surface waters of the
Keys.
• Net water movement through the tidal passes between the Keys is toward
the Atlantic Ocean. Once entering Hawk Channel, water direction and speed
is controlled by prevailing winds and ocean currents.
• Coral habitats are exhibiting declines in health; coral diseases are more
common and benthic algae have increased in abundance and spatial
coverage.
• There are no definitive studies on the geographic extent of the impact of
human-caused nutrient enrichment. Scientists agree that canal and other
nearshore waters are affected by human-derived nutrients from sewage.
Improved sewage treatment practices are needed to improve canal and other
nearshore waters. Impacts further from shore that may be due to human-
derived nutrients may be reduced or eliminated by cleaning up nearshore
waters.
• Planning and implementation of improvements to wastewater treatment are
underway.
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• A long term monitoring program has been implemented to provide
information on the status and trends of water quality, coral, and seagrass
communities.
• The costs of water quality improvements are a small fraction of the long term
asset value that natural resources (such as reefs, hard bottoms, and
seagrasses) provide to the economy of the Florida Keys.
B. Analysis: FDEP's Florida Keys Reasonable Assurance Plan prepared in
December 2008, provides the following summary of water degradation in the Keys.
In 1985, when the Florida Keys were designated as an OFW, water quality data
were collected to define the existing ambient water quality at the point of
designation. Data were collected at 165 stations from January to February 1985 in
three areas: Bayside (49 stations north and northwest of the islands), Oceanside (46
stations south and southeast of the islands), and Canal (70 stations within the
artificial waterways interior to the islands in canals, boat basins, and marinas).
Parameters measured included dissolved oxygen, pH, temperature, conductivity,
salinity, nitrogen species,total phosphorus, and fecal coliform.
Table 27 represents the range of nutrient water quality at the time of OFW
designation and the water quality that needs to be protected according to the OFW
designation. Table 28 provides estimated nutrient concentrations as a result of the
nutrient models prepared for the Florida Keys Reasonable Assurance Plan and
represent the ambient nutrient content of the nearshore waters in 1999.
Table 27: 1985 FDEP OFW Water Quality Data
1985 FDEP OFW Water Quality Data
Total Nitrogen (µg/Lj Total Phosphorus µ L
Location Average Minimum Maximum Average Minimum Maximum
Ba side 370 130 697 14 1 54
Oceanside 288 145 489 15 4 80
Table 28: 1999 Baseline Nutrient Concentrations
1999 Baseline Nutrient Concentrations
Total Nitrogen (µg/Lj Total Phosphorus µ L
Location Average Minimum Maximum Average Minimum Maximum
Ba side 381 211 782 19 10 50
Oceanside 159 119 275 15 6 48
This data shows that average total nitrogen and total phosphorus values (except
Oceanside) exceed those of the 1985 OFW data, indicating, according to OFW
criteria, a degradation of water quality due to nutrient concentrations.
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Anecdotal information and observations from FDEP staff, scientists, and engineers
working in the Keys, and other observers, point out increasing problems with water
clarity, proliferation of macrophytic and epiphytic algae in the nearshore waters
which can be linked to nutrient enrichment [see Section 3.8.2 (Seagrass Beds)].
Boyer and Briceno (2008) provide an annual summary of the Water Quality
Monitoring Project for the FKNMS as part of the Water Quality Protection Program.
The period of record for the 2008 report is March 1995 through December 2008
and includes data from 50 quarterly sampling events at 154 stations within the
FKNMS including the Dry Tortugas National Park. Field parameters measured at
each station included salinity, temperature, dissolved oxygen, turbidity, relative
fluorescence, and light attenuation. Water quality variables include the dissolved
nutrients nitrate, nitrite, ammonium, dissolved inorganic nitrogen, and soluble
reactive phosphate. Total unfiltered concentrations include those of nitrogen,
organic nitrogen, organic carbon, phosphorus, silicate, and chlorophyll a.
The U.S. Environmental Protection Agency (USEPA) developed Strategic Targets for
the Water Quality Monitoring Project, which state that beginning in 2008, they will
annually maintain the overall water quality of the nearshore and coastal waters of
the FKNMS according to the 2005 baseline. For reef sites, chlorophyll a should be
less than or equal to 0.2 µ/L and the vertical attenuation coefficient for downward
irradiance (light attenuation) should be less than or equal to 0.13 per meter. For all
monitoring sites in FKNMS, dissolved inorganic nitrogen should be less than or
equal to 0.75 micromolar (µM) and total phosphorus should be less than or equal to
0.2 µM. The following data shows the number of sites and percentage of total sites
exceeding these Strategic Targets for 2008 (Boyer and Briceno, 2008):
• 88 of 136 reef values are greater than 0.2 µg/L chlorophyll a (64.7 percent)
• 33 of 129 reef values are greater than 0.13/m light attenuation (25.6 percent)
• 106 of 1,003 total values are greater than 0.75 µM ammonium (10.6 percent)
• 530 of 1,005 total values are greater than 0.20 µM phosphorus (52.7 percent)
Boyer and Briceno (2008) noted elevated nitrate in the inshore waters of the Keys.
The distribution implies an inshore source which is diluted by low nutrient Atlantic
Ocean waters. Since the 2005 hurricane season, water quality on the reef, especially
dissolved inorganic nitrogen, were elevated but have mostly returned to normal
levels. Boyer and Briceno (2008) note that it is clear that some of the trends
observed inside the FKNMS are influenced by regional conditions outside the
FKNMS boundaries and are not in the control of the County.
A number of studies were initiated to identify the causes of water quality
degradation in Florida Bay. These studies were reviewed in Lodge (2005) and are
summarized as follows:
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• Due to drainage modifications, the freshwater and nutrient inputs to Florida
Bay from the Everglades are negligible compared to tidal exchanges through
the passages in the Middle Keys and across the western connection of Florida
Bay with the Gulf of Mexico.
• Nutrients and water quality problems in the bay are drawn from currents
from the eastern Gulf of Mexico. This implicates enriched discharges of
waters from Lake Okeechobee and the Caloosahatchee River.
• The limiting nutrient for the western Florida Bay is nitrogen, not phosphorus
(phosphorus is an important pollutant in inland waters). Nitrogen from
agricultural sources has enriched eastern and central Florida Bay, where
phosphorus is limiting. Nitrogen combined with phosphorus from the west
has caused algal blooms and turbidity problems.
• Pulsed freshwater releases carry contamination loads from agricultural
runoff. The pulses also result in low salinities, which is seldom a problem
(unless the biota that receives the pulse is intolerant). These pulses have
been implicated in the occurrence of algal blooms (Rudnick et al., 2006).
• Roseate spoonbills are an indicator of the health of the bay. Their abundance
and reproductive success is tied to the production of juvenile fishes.
• Many studies have demonstrated the complexity of the bay because it has a
range of characteristics over its extent. No data exist to provide a pre-
drainage baseline that could serve as a restoration target.
To support the resource protection purpose of the FKNMS, Congress directed the
USEPA and the State of Florida, represented by FDEP, to develop a Water Quality
Protection Program (WQPP) for the Sanctuary. The purpose of the WQPP is to
recommend corrective actions that restore and maintain the water quality
conditions needed to maintain healthy native plant and animal populations in
FKNMS waters. The Act also requires the development of a water quality
monitoring program.
The WQPP consisted of a set of initial recommendations for corrective actions,
monitoring, research and special studies, and education and outreach.
Recommendations for monitoring and special studies were conducted by the USEPA
and FDEP. Most recommendations for corrective actions require coordination
activities by numerous agencies. The Program has funded three long-term
monitoring projects: overall water quality, coral reef and hard bottom community
health, and seagrass community health.
The USEPA prepared the Water Quality Protection Program for the Florida Keys
National Marine Sanctuary: Phase 1 Report, which listed 84 water quality hot spots.
These areas have been identified as sites of known or suspected water quality
degradation, based upon workshops and discussion groups. The list was later
increased to a list of 88 hot spots in 1996, primarily as a result of water quality
issues and wastewater influences. Hot spot locations correspond with higher
density urban areas, representing neighborhoods and subdivisions with the poorest
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sewage treatment and strongest need for central sewage facilities. During
preparation of the Monroe County Sanitary Wastewater Master Plan, a priority
ranking system was developed to determine the order in which these areas should
be provided with wastewater collection and treatment facilities, using Best
Available Technology. Three recommendations were made for all higher priority,
poorly designed canal systems:
• install Best Available Technology sewage treatment,
• collect and treat stormwater runoff, and
• improve canal circulation (Kruczynski, 1999; USACE and SFWMD, 2004).
Water quality monitoring data have been collected in and around the Keys by
Florida International University since 1995 as part of the WQPP. These studies
revealed significant increases in total phosphorus and nitrate (a form of nitrogen) in
the Keys and Tortugas over a five year sampling period. Increases did not occur in
areas influenced by Florida Bay water transport and these results may suggest that
increasing nutrients outside the influence of Florida Bay are due to local influences
of nearshore waters. In contrast, total organic nitrogen decreased over the five year
sampling period and may be a result of regional circulation patterns of the Loop and
Florida Currents (Jones and Boyer, 2001; USACE and SFWMD, 2004).
Results from the WQPP (1995-2006) indicated that Middle and Lower Keys inshore
waters had higher nitrate concentrations than waters from the reef tract. In the
inshore waters of the less populated Upper Keys and the Tortugas, nitrate levels
were low and similar to those found on the reef tract. This difference suggests that
shoreline development may be the source of nitrate in the Middle and Lower Keys.
The USEPA estimates that nutrient loadings from the Keys to nearshore marine
waters total 2,377 lbs/day of total nitrogen and 544 lbs/day of total phosphorus.
About 80 percent of this total nitrogen and 56 percent of the total phosphorus were
attributed to wastewater disposal, while the remainder was attributed to
stormwater runoff. An analysis of inputs from municipal wastewater, live-aboard
boats, and stormwater indicated nutrient rich groundwater accounts for about 63
percent of total nitrogen and about 44 percent of total phosphorus loading from the
Keys to the nearshore marine waters (USEPA, 1996; USACE and SFWMD, 2004).
In addition to nutrient loading and anaerobic conditions, degraded water quality in
canals and isolated waterbodies also pose a human health concern. Multiple studies
have been conducted to determine the presence of pathogens and their origins. One
study in 1997 involved the testing of 19 sites throughout the Keys, including 17
residential canals and two nearshore sites selected from a USEPA hot spot list based
on suspected poor water quality. The testing detected the presence of viruses, but
did not determine whether they were infectious in nature. In the survey, 15 of the
19 sites tested positive for enteroviruses and 12 sites tested positive for the
hepatitis A virus. Clinical symptoms of enteroviruses are generally mild, but
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occasional infections may cause serious disease such as paralytic poliomyelitis,
meningitis, or myocarditis (USACE and SFWMD, 2004).
Another study, funded by the USEPA (Fuss, 2000), showed that at least one Keys
canal contained live infectious viruses linked to human waste. Among the viruses
identified in the water sampling were those that cause polio and viral meningitis,
along with a variety of others that cause lesser viral illnesses. Researchers sampled
water at six sites from Key Largo to Key West, and one canal in lower Matecumbe
Key that was defined as a hot spot. Test results indicated the presence of live
enteroviruses, including polio, Coxsackie A and B and echoviruses in Captains Cove,
a canal basin in the Port Antigua neighborhood of lower Matecumbe Key. Coxsackie
A and B can cause diseases such as herpangina and myocarditis. Echoviruses can
cause a variety of illnesses, ranging from fever to viral meningitis. Coxsackie B has
also been repeatedly implicated as a causal agent for chronic fatigue syndrome
(USACE and SFWMD, 2004).
These studies indicate that current wastewater treatment practices are contributing
to health hazards in the canals in the Keys. All of the detected viruses are
transmissible through human feces and are believed to have been transported into
Keys canals in raw sewage from leaking cesspools and septic tanks (Fuss, 2000)
(USACE and SFWMD, 2004).
Clean public beaches and nearshore water quality are leading health concerns in the
County. The number of beach health advisories due to elevated contamination
levels has risen during recent years. Of 15 County beaches monitored in 2001, five
were found to have elevated bacterial levels and received water quality advisories
(Table 29).
In 2002, 15 Keys beaches were tested, and two, John Pennekamp Coral Reef State
Park in Key Largo and Higgs Beach in Key West, were found to have high
concentrations of enterococcus indicating contamination from mammalian waste
through wastewater or stormwater. While there were no beach closings reported in
2001, the total number of advisories was up substantially from earlier years. A total
of 30 days of beach advisories and closings were reported in 2000 as compared to
60 in 2001 (FEMA, 2002). The total number of beach advisories and closings for
2002 was 138 days for all health advisories. These advisories were issued
throughout the year, with little apparent association with time of year (USACE and
SFWMD, 2004).
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Table 29 - Monroe County Beach Advisories and Closings (2001)
Bahia Elevated
Honda Advisory 2 24 and 11 bacteria Enterococci
Oceanside levels
Coco Plum Elevated
Beach Advisory 2 11 and 11 bacteria Enterococci
levels
Curry Elevated
Hammock Advisory 1 1 bacteria Enterococci
State Park
levels
(Marathon)
Higgs Beach 14, 11, 24, Elevated Enterococci
(Key West) Advisory 4 and 27 bacteria and fecal
levels coliform
Veteran's Elevated
Beach Advisory 1 4 bacteria Enterococci
Marathon levels
Source: Florida Department of Health,2003,online data.
Point sources of water pollutants are defined as discharges from any discernible,
confined, and discrete conveyance, such as a pipe, ditch, container, etc., which flow
directly into surface water. In the County, point source discharges include releases
from concrete batch plants, a sanitary wastewater treatment plant, and urban
runoff. Some stormwater discharges (urban runoff) are considered point sources
according to the USEPA and some are non-point sources. In this document, urban
runoff is discussed in Section 3.5.3.2.8 (Urban Runoff) below. All point sources are
required to operate under a National Pollutant Discharge Elimination System
(NPDES) Permit pursuant to the Federal Clean Water Act. In 1995, the USEPA
authorized the FDEP to administer the NPDES Wastewater Program in Florida.
Consequently, the NPDES permit requirements are now included in the State-issued
permit for most wastewater facilities providing the permittee with one set of
requirements for each facility. In 2000, FDEP was authorized to administer the
NPDES Stormwater Program.
Since 1974, there has been a steady decline in the number of permitted facilities
discharging wastewater into surface waters in the County. According to USEPA
data,the number of NPDES Permits dropped from 70 in 1974, to 35 at the beginning
of 1991, and to 23 in November 1991 (CSA, 1991). The FDEP data, as of July 2010,
list five dischargers in the County (incorporated and unincorporated areas): four are
concrete batch plants and one is a domestic sanitary wastewater plant(FDEP 2010).
Discharges have been discontinued as a result of a combination of business closures,
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stringent water quality standards, and/or permits for alternative disposal methods
such as regional deep well injection facilities. Pursuant to Section 62-302.700(9),
F.A.C., the waters in the Florida Keys have been designated as OFW, which are
afforded special protection. Because discharges must meet these stricter surface
water quality standards, it is difficult to obtain a surface water permit. Therefore,
most treatment facilities elect to discharge into Class V injection wells (boreholes),
which are considered non-point discharges [see Section 3.5.3.2.8 (Urban Runoff)].
FDEP anticipates that eventually all point source discharges will be eliminated in
favor of the deep well injection method.
To ensure that discharges meet surface water and groundwater criteria, the
permitted facilities are required to submit monthly Discharge Monitoring Reports to
FDEP. The reports provide effluent monitoring data for toxicity, effluent quality,
fecal coliform, and discharge rates. Together with FDEP site inspections, the reports
help FDEP ensure that the facilities are meeting their discharge limitations and are
operating in accordance with the permitted requirements.
Non-point sources of water pollutants are defined as discharges made directly or
indirectly to overland flow or groundwater. They are associated with land use and
activities associated with everyday life, such as: vehicles and machinery leaking gas,
oil and grease; disposal of oil in storm drains; overuse of fertilizer and pesticides;
litter; and pet waste. In addition, typical non-point sources in the County include
domestic and industrial wastewater facilities, on-site sewage treatment and disposal
systems (OSTDS), erosion and sedimentation from unvegetated lands, abandoned
and inactive landfills, marinas, live-aboard vessels, application of mosquito control
pesticides, and urban runoff.
For permitting purposes, wastewater facilities are designated as industrial or
domestic based on the type of wastewater the facility treats. Domestic wastewater
is generated by dwellings, business buildings, and institutions. All wastewater that
is not defined as domestic is considered industrial. Industrial wastewater sources
include manufacturers and commercial businesses, such as concrete batch plants,
laundries, and dry cleaners.
In addition to the five point source dischargers described above, FDEP records
(FDEP 2010) indicate that there are 234 domestic and seven industrial wastewater
treatment facilities with operating permits in the County (incorporated and
unincorporated areas). These facilities provide wastewater treatment and disposal
for municipalities, schools, hospitals, restaurants, hotels/motels, trailer parks,
campgrounds, marinas, office buildings, condominiums, resort complexes, shopping
centers, and laundries. FDEP data indicate that on July 6, 2010, 46 domestic
wastewater permits and one industrial wastewater permit were under review.
To ensure that discharges meet surface water and groundwater criteria, the
permitted facilities are required to submit monthly Discharge Monitoring Reports to
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FDEP. The reports provide effluent monitoring data for toxicity, effluent quality,
fecal coliform, and discharge rates. Together with FDEP site inspections, the reports
can help FDEP ensure that the facilities are meeting their discharge limitations and
are operating in accordance with the permitted requirements.
Wastewater treatment plants in the County treat effluent to advanced standards and
discharge via deep well injection. This methodology is the preferred method
according to FDEP staff. It is anticipated that regional wastewater treatment plans
will be constructed using deep well injection. Improved properties within the
service areas of these facilities will be required to connect to the regional plants,
reducing the use of septic tanks. Well construction and discharge are regulated by
FDEP pursuant to Chapter 62-528, F.A.C.
The Florida Department of Health (FDOH) regulates and permits the use of On-Site
Sewage Treatment and Disposal Systems (OSTDS). However, FDOH does not permit
the use of an OSTDS where the estimated domestic sewage flow is over 10,000
gallons per day (gpd) or the commercial sewage flow is over 5,000 gpd. In the early
1990s, it was estimated that there were 24,000 septic tanks and 5,000 cesspits in
the Florida Keys. In the late 1990s, it was estimated that there were 20,000 septic
tanks and 4,000 cesspits (Kruczynski, 1999). Based upon best estimates presented
in Kruczynski (1999), approximately 80 percent of nitrogen loadings to nearshore
waters came from wastewater. OSTDS (septic tanks and aerobic treatment systems)
and cesspits accounted for 40.3 percent of nitrogen loadings. For phosphorous,
approximately 55 percent of phosphorus loadings were from wastewater. OSTDS
and cesspits accounted for 33.2 percent of total phosphorus loadings (Kruczynski,
1999). According to The Florida Statewide Inventory of Onsite Sewage Treatment
and Disposal Systems, June 4, 2009, there is no comprehensive database for the
number of OSTDS in the County. Based on the number of known OSTDS (permitting
records) and the number of improved parcels, that report estimated that there may
be as many as 46,977 OSTDS in the Keys. Improperly designed, constructed, and
maintained OSTDS can allow wastewater to enter canals, groundwater, and other
nearshore waters. The 2010 Florida Legislature passed Senate Bill 550 (SB 550)
amending portions of Chapter 373, F.S. among other statutes, to ensure proper
management of OSTDS to protect the health, safety, and welfare of the public.
Governor Crist signed the bill on June 4, 2010 and site evaluations will begin in
2011. As a result of SB 550, FDEP is mandated to adopt a special rule for the OSTDS
in the Florida Keys. The new criteria will:
• increase setbacks from surface waters, saltmarsh, and buttonwood
association habitat areas;
• preclude discharges from OSTDS by December 31, 2015 if higher discharge
standards are not met;
• require basic disinfection for systems discharging to an injection well;
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• require all new, modified, or repaired OSTDS to meet new criteria as of July 1,
2010 unless the area will be served by a regional sewer by December 31,
2015; and
• require documented inspections of OSTDS once every five years.
Although the potential exists for problems, monitoring data do not indicate leaching
or water quality degradation due to landfills (U.S. Department of Commerce, 2007).
The County does not have any active landfills receiving solid waste for on-site
disposal. Solid waste collection is provided by several private franchise operators,
each servicing a specific geographical area of the County. Disposal of solid waste is
currently handled by three transfer station operations (Cudjoe Key Transfer Station
at Mile Marker (MM) 21.5, Long Key Transfer Station at MM 68, and Key Largo
Transfer Station at County Road 905) where waste is prepared for transportation
and disposal out of the County.
In years prior to 1992, unincorporated Monroe County operated municipal landfills
at Long Key Landfill, Cudjoe Landfill, and Key Largo Landfill. Both the Long Key and
Key Largo facilities operated under a FDEP Consent Order.
In addition to the three inactive municipal landfill sites, USEPA identified five
abandoned dump sites in the County (USEPA, no date). These include the following:
• Boca Chica Key (south U.S. 1 SR 5, MM 8). Site owned by the U.S.
Government, operated as a landfill from 1947 to 1955. It is currently part of
the runway on the Naval Air Station;
• Saddlebunch Key (north U.S. 1 SR 5, MM15). Site owned by the U.S.
Government. Operated by Bland Disposal as a landfill from 1957 to 1977;
• Middle Torch Key (north U.S. 1 SR 5, MM 27). Privately owned. Operated by
Bland Disposal 1969 to 1978;
• Boot Key (south U.S. 1 SR 5, MM 48). Privately owned, operated by the
County as a landfill 1951 to 1977; and
• Key Largo (SR 905, 4 miles NE U.S. 1 SR 5). Privately owned, operated by
Key's Sanitary Service as a landfill 1957 to 1980.
All landfill sites in the Florida Keys, with the exception of the Cudjoe Key expansion,
were developed prior to current regulations that require bottom liners and leachate
collection. At many sites, filling with solid waste probably occurred below the water
table in the early stages. Consistent with common practice at the time, there was
probably little or no control over materials deposited in the landfills. These
conditions result in a significant potential for groundwater and surface water
contamination. The underlying strata is either the Miami Oolite or Key Largo
Limestone, both of which are highly porous and permeable and subject to saltwater
intrusion and mixing (CSA, 1991). Leachate, when introduced to this type of
substrate can migrate off-site through a number of subsurface cavities, fracture
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zones, or cavernous zones (CSA, 1991). Conditions favor the migration of materials
that tend to upwell a considerable distance away (e.g., at an offshore location) (CSA,
1991). The NOAA Florida Keys National Marine Sanctuary Revised Management
Plan (U.S. Department of Commerce, 2007) recommends searching for and assessing
abandoned landfills and dumps, intensifying existing monitoring programs around
landfills to ensure that no significant leaching into marine waters is occurring, and
implementing remedial actions if problems are discovered.
Water quality in the vicinity of marinas is affected by general marina operations,
such as boat scraping and painting operations, fueling, and engine repair, as well as
by discharges from live-aboard vessels docked in marina slips. Data are not
available to quantify loadings of pollutants from marina operations (Kruczynski,
1999). Some of the more potentially toxic or harmful materials associated with
marinas include paints and wood preservatives containing copper and other heavy
metals (Snedaker, 1990). Metal corrosion and oxidation represents an additional
source of metal contamination due to the widespread use of zinc to protect boat
hulls. Bilge waste is a source of oils, coolants, lubricants, and cleaners.
Research suggests that toxic materials, which normally accumulate in organic
bottom sediments, are more dispersed in nearshore marine environments such as
are typical of the Keys where there is an absence of rich organic bottom sediments
(Snedaker, 1990). A study of a marina in Marathon (FDER, 1987) indicated that
water quality was significantly impacted in comparison with ambient conditions
based on dissolved oxygen, pH, coliform bacteria, biological oxygen demand, Total
Kjeldahl Nitrogen, total phosphorus, copper, and zinc. The presence and
distribution of coprostanol in bottom sediments within and adjacent to the marina
confirmed that the marina basin, particularly beneath boat slips,was acting as a sink
for sewage contaminated water (FDER, 1987). Water quality studies for Boot Key
Harbor (FDER, 1990) and Campbell's Marina on Key Largo (FDER, 1988) have also
linked marina activities to water degradation.
Although there is the potential for toxic materials in water and sediments of
marinas, poor water quality in marinas is more often attributed to poor onsite
wastewater systems in the area, poor stormwater treatment, and live-aboards
releasing wastewater.
Live-aboard vessels are found throughout the nearshore waters of the Florida Keys.
In 1988, the total number of live-aboard boats in the Keys was estimated to be
1,410, housing some 3,000 residents (Antonini et al., 1990). This estimate included
vessels used for continuous overnight stays of at least two months. Live-aboards
include a large number of permanent and seasonal residents. The most common
type of live-aboard boat was a sailing vessel, comprising 69 percent of the total.
Most live-aboard vessels were tied up in marinas, although a sizable number were
anchored offshore. Approximately 70 percent of live-aboard vessels were found at
shoreside sites (marinas, clubs, boat yards, piers, seawalls) and 30 percent of live-
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aboards anchor in coastal waters. Shoreside live-aboard sites are found throughout
the Keys while anchorages tend to be concentrated. Over half of them were in Boot
Key Harbor in the Middle Keys. Other major anchorage locations were Cow Key
Channel and Wisteria Island (locally known as Christmas Tree Island) in the Lower
Keys,which accounted for 27 percent of the anchorages.
In 2002, the Monroe County Department of Marine Resources (now referred to as
the Marine Resources Office) prepared the Keys-Wide Mooring Field System
Preliminary Planning Document which included a survey of 15 anchorage sites
throughout the Keys. A variety of site data were collected, including physical and
biological data (depth, seagrass, etc.), cultural data (types of boats and boaters), and
logistical data (where boaters access land, availability of pump-outs, etc.) An
Anchorage Site Evaluation Form was generated for each site using the collected
data. Based on the evaluation forms, approximately 500 to 800 boats were
anchored at the sites, with approximately 200 to 250 in unincorporated areas. The
type of each boat was not described, but most anchorage sites were described as
containing predominantly live-aboard vessels.
Wastewater flows from live-aboard vessels have been estimated at 100 gpd per boat
(FDER, 1988). Antonini et al. (1990) reports that disposal of sanitary waste is by
one or more methods: overboard by flushing, holding tank storage and subsequent
shoreside pump-out, and/or on-board pretreatment and discharge. Antonini et al.
(1990) estimated that less than 10 percent of the live-aboard vessels use sewerage
pump-out facilities. A Monroe County Grand Jury received testimony that up to 80
percent of live-aboard vessels do not use sewage dumping facilities (Kruczynski,
1999).
Kruczynski (1999) reported that disposal of wastewater from live-aboard vessels is
a significant localized problem because of the low level of treatment, the tendency
for live-aboard vessels to congregate in certain marinas or anchorages, and
potential adverse health effects of discharging untreated wastewater.
The Clean Vessel Act of 1992 (Section 327.53, F.S.) prohibits the discharge of raw
sewage from any vessel, houseboat, or floating structure into Florida waters. A
houseboat is a vessel that is used primarily as a residence (21 days out of any 30 day
period) and its use as a residence precludes its use as a means of transportation.
Houseboats and floating structures must have permanently installed toilets attached
to Type III Marine Sanitation Devices (MSD) or connect their toilets directly to
shoreside plumbing. A Type III MSD is one that stores sewage onboard in a holding
tank for pump-out. Houseboats may also have other approved MSD on board; but, if
they do, the valve or other mechanism selecting between devices shall be selected
and locked to direct all sewage to the Type III device while in Sanctuary waters. All
vessels that have MSD capable of flushing raw sewage directly overboard or of being
pumped into a holding tank, must set and secure the valve directing all waste to the
holding tank, so that it cannot be operated to pump overboard while in Sanctuary
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waters. All waste from a Type III MSD or from portable toilets must be disposed in
an approved sewage pump-out or waste reception facility (Kruczynski, 1999).
While Chapter 327, F.S. prohibited the dumping of raw sewage, treated wastewater
from transient vessels still could be discharged into State waters. Wastewater
treatment (disinfection) by Type I and II MSD does not remove nutrients from
wastewater. Graywater did not have to be stored or treated from any vessel and
could be discharged directly into waters of the State. Thus, many live-aboard
vessels and most transient vessels discharged wastewater into surface waters. It
was estimated that live-aboard vessel wastewater account for 2.7 percent of
nitrogen and 2.9 percent of phosphorus loadings into nearshore waters of the Keys
(Kruczynski, 1999). Although nutrient loadings from vessels may be relatively
minor contributions to the total loading, loadings from vessels are a significant
localized source to harborages and result in eutrophication of waters that typically
exhibit poor circulation/flushing (Kruczynski, 1999).
The USEPAdesignated the Florida Keys as a No Discharge Zone for boater sewage.
Effective June 19, 2002, the No Discharge Zone designation prohibits discharging
sewage into all State waters of the FKNMS. This includes treated sewage from
marine sanitation devices but does not apply to gray water from showers or sinks,
only sewage. The No Discharge Zone strengthened existing regulations under the
Florida Clean Vessel Act so that even chemically-treated sewage cannot be
discharged overboard. All State waters of the FKNMS are included in the No
Discharge Zone.
Pump-out facilities are available for boaters at various locations throughout the
Florida Keys. The Monroe County Marine Resources Office periodically updates a
list of facilities in the Keys (incorporated and unincorporated areas) that offer
pump-out service. The October 2010 list indicated that 16 marinas provide pump-
out service for private use by their guests (5 in the Upper Keys, 9 in the Middle Keys,
and 2 in the Lower Keys), and 27 other marinas provide pump-out service for the
general public (7 in the Upper Keys, 8 in the Middle Keys, 4 in the Lower Keys
excluding Key West, and 8 in Key West).
Many live-aboard vessels are permanently anchored and mobile pump-out facilities
are required to service those vessels. In 1999, there were no mobile pump-out
facilities in the Keys, but by October 2010 five vessels were providing mobile pump-
out services. Mobile pump-out service areas include (1) Key Largo oceanside and
bayside, (2) Duck Key to Key Colony Beach, (3) Boot Key Harbor area, (4) Stock
Island area and Boca Chica basin, and (5) Key West area including Fleming Key and
Wisteria Island. Even in areas having mobile pump-out service, many anchored live-
aboard vessels do not take advantage of mobile pump-out facilities and can degrade
water quality by discharging their waste overboard.
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The FFWCC and its marine law enforcement partners (FDEP, U.S. Coast Guard, and
Monroe County Sheriff's Office) occasionally conduct inspections. From Key Largo
to Key West, officers check live-aboard occupants for compliance with Coast Guard-
required safety equipment, State registration requirements, nighttime anchor
lighting, and marine toilet specifications.
Seafood processing facilities generate large amounts of wastewater and historically
discharged wastewater to open waters. FFWCC maintains data on the amount of
seafood harvested in the County. In the County, the average seafood harvest for
2004-2008 was 12 million pounds annually. Wastes from seafood processing
operations include fish carcasses, cooking water, and wash-down water. Seafood
processing facilities must now be connected to an approved wastewater treatment
system in compliance with Sections 403.086 and 403.087 F.S. Seafood processing
facilities no longer discharge to open waters.
The Florida Keys Mosquito Control District conducts year-round applications of
pesticides for mosquito control. These applications are a source of atmospheric and
land-based non-point loading on the Florida Keys environment(CSA, 1991).
Ground spraying by truck is the current method for controlling the adult mosquito
population. However, aerial spraying is initiated only when the mosquito
population reaches a certain threshold, as determined by mosquito landing counts
at test sites. Although the Florida Keys Mosquito Control District attempts to avoid
marine areas during aerial spraying, there is the potential for pesticides to reach
marine waters. Use of ultra low-volume aerial spray in recent years has
significantly reduced the volume of pesticide applied and has eliminated the use of
fogging oil contamination. However, the area being sprayed is now harder to define
because the spray is not visible, and the finer particles are susceptible to greater
drift. The Florida Keys Mosquito Control District refines flight lines, evaluates
alternative spray technologies, and makes equipment improvements to reduce the
amount of pesticide released over water.
Housing patterns, design, and landscaping affect the demand for mosquito control.
Most pesticide applications are limited to areas surrounding residential
communities, commercial and light industrial site locations, within the boundaries
of the County's inactive landfills, and within areas of standing water (CSA, 1991).
Applications are restricted on most conservation lands owned by the State and
federal governments, particularly on North Key Largo due to the presence of the
State- and federally-listed endangered Schaus' swallowtail butterfly.
The Florida Keys Mosquito Control District uses several larvicides (products to
control mosquitoes in their larval stage) and adulticides (products to control adult
mosquitoes) depending on the situation. Both of the adulticides (naled and
permethrin) are also used in agriculture. They may be used on food crops at rates
much higher than are used for mosquito control. They are also used in pet
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shampoos (permethrin) and flea collars (naled). Permethrin is also applied directly
to livestock to control pest insects, and is the active ingredient in some human louse
shampoos.
• Bacillus thuringiensis israelensis, or Bti, is a naturally-occurring soil
bacterium. It is applied for control of mosquito larvae in large areas of water.
• Bacillus sphaericus, or Bs, is a common soil-inhabiting bacterium. It is
applied to control mosquito larvae in highly polluted water, such as sewage
treatment plants.
• Methoprene is a synthetic mimic of juvenile hormone, a hormone found in
insects. Methoprene is used in situations like cisterns and abandoned
swimming pools.
• Temephos is used very sparingly and infrequently. It is applied only to
temporary pools that contain mosquito larvae but do not support nontarget
organisms.
• Chlorpyrifos is used to treat ornamental bromeliads (water-holding plants).
• Oils and monomolecular surface films are used to control pupae and larvae
by interfering with their ability to breathe. These products are used only
when an adult emergence will occur without treatment.
• Gambusia are a species of mosquito-eating fish. The Florida Keys Mosquito
Control District raises these fish and stocks them in permanent freshwater
bodies.
• Naled is used to control adult mosquitoes with the aerial program. Naled is a
fast acting, non-systemic contact, and stomach poison in insects and mites. It
is used as a short-term fumigant to control agricultural pests on ornamental
in greenhouses, animal and poultry houses, kennels, and food processing
plants.
• Pyrethrum is used to control adult mosquitoes with spray trucks. Pyrethrum
is a botanical insecticide produced primarily from the flowers of a species of
the chrysanthemum plant family. Pyrethrum is made up of six complex
chemical esters known as pyrethrins that work in combination to repel and
kill insects.
The specific pesticides used have varied over time. In the early 1990s, the most
commonly used insecticides (by tradename) included the following (CSA, 1991):
Dibrom 14C Teknar Artosurf
Malathion Biomist 4 + 12 Scourge
Acrobe Bactimos Fog Oil
Abate Altosid Fyntex
Ortho Additive Bectobac Diesel Oil
Material Safety Data Sheets from the Pesticide Information Office of the Florida
Cooperative Extension Service indicate that many of these chemicals are toxic to
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fish, aquatic life and/or wildlife and should not be applied directly to water (CSA,
1991).
Some pesticides used in mosquito control are nonspecific; that is, in addition to
controlling mosquitoes, the chemicals also affect the larval stages of crustaceans,
fish, and other natural mosquito predators. Pesticides used for mosquito control, or
their toxic breakdown products, have been found in some canals in concentrations
high enough to adversely affect marine organisms. USEPA funded a study in 1997 to
assess potential impacts of mosquito spray chemicals and their breakdown
products. Although the study was not conclusive, it did determine that sprayed
chemicals reach surface waters in concentrations that are of concern. Additional
data concerning pesticide concentrations in sediments and biological tissues
throughout the FKNMS are being collected through the Water Quality Research
Program.
In the past, the USEPA has not required an NPDES permit for point source
discharges from the application of pesticides to surface waters. Instead, this activity
was regulated through the Federal Insecticide, Fungicide, and Rodenticide Act
(FIFRA). However, effective April 9, 2011, an NPDES permit will be required for
discharges to surface waters of biological and chemical pesticides that leave a
residue. Florida will be developing its own rule to cover such discharges.
Non-point source contamination of nearshore waters in the Keys by urban runoff is
limited by the small area of developed land in the County in relation to the
surrounding water area, and by the natural high permeability of the underlying
limestone (FDER, 1987). However, despite these conditions, researchers warn that
given the low assimilation threshold of oligotrophic waters, the potential impacts on
non-point source loading from urban runoff should be recognized (Snedaker, 1990).
Some evidence suggests that when stormwater discharges are located in artificial
waterways, contamination from runoff can be magnified, with the result that even
minor inputs may become harmful over extended periods (FDER, 1987). Water
quality parameters which are typically degraded in areas receiving contaminated
stormwater include DO, pH, phosphorus, total coliform bacteria, heavy metals, and
petroleum hydrocarbons.
In Florida, the water management districts and local governments now impose a
minimum level of stormwater treatment for all new developments, and the
standards that apply to the Florida Keys are the most stringent in the State. The
criteria are intended to protect surface waters according to their use classification.
Much of the development in the Florida Keys occurred prior to the existence of these
criteria. Similar to other parts of the State at the time, stormwater was considered a
nuisance since it resulted in flooding. Therefore, if stormwater control systems
were employed at all, they were typically designed to efficiently convey water off
land surfaces as quickly as possible. These old systems are considered to be the
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most liable to cause water pollution and, therefore, policies now in place seek to
retrofit them whenever possible (Kruczynski, 1999).
In the Keys, stormwater runoff from roadways, bridges, driveways and yards, roof
tops, and shopping center parking lots contribute stormwater loading to surface
waters. The amount of pollutant load caused by stormwater runoff can be estimated
mathematically from rainfall quantity, imperviousness (i.e. the degree to which
rainwater cannot soak into soil), and land use. Estimates of total loadings of
nitrogen and phosphorus from wastewater and stormwater were summarized in
Kruczynski (1999). These estimates attributed about 20 percent of the nearshore
nitrogen load and about 45 percent of the phosphorus to stormwater. These
estimates, however, can vary widely depending on the magnitude of each factor
(Kruczynski, 1999).
Marine litter originates from a variety of sources including intentional and
unintentional releases from recreational boaters, shoreline users, commercial
fishing operations, sportfishing and diving boats, and oceanic sources such as
merchant ships, cruiseships, and oil drilling vessels. In addition, litter on the land
blows into the waterways of the Keys.
Entanglement and ingestion of marine litter can directly damage wildlife. Birds, sea
turtles, and other animals can die when they become entangled in fishing lines, six-
pack rings and other trash, or when they mistake garbage for food. Marine litter can
also cause habitat destruction including smothering of seagrasses and coral (UNEP,
2010). According to Chiappone et al. (2002), fishing gear (hooks and lines) and
debris from lobster traps causes damage to the coral reefs in the Florida Keys.
Marine litter along beaches and waterways can reduce the beauty and enjoyment of
those areas, and hence, negatively affect tourism. Maintaining the beauty of these
areas also costs time and money for both the private and public sectors (UNEP,
2010).
Discarded fishing line, rope, and plastic trash or food bags can disable boats and
ships by wrapping around boat propellers or being sucked into outboard boat
engines. Medical wastes transported onto beaches by winds and waves can
threaten public health through disease transmission and broken glass and other
sharp objects (UNEP, 2010).
Natural and man-made sources of pollutants affect waters of the FKNMS, including
increased turbidity or suspended solids, temperature changes, increased nutrients,
salinity changes or increased levels of heavy metals, synthetic organic chemical, and
man-made organic chemicals (CSA, 1991).
Water quality in Florida Bay is highly variable depending upon prevailing weather
and climatic conditions (Schomer and Drew, 1982; SFWMD, 1991) and is the result
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of natural and man-made causes (U.S. Department of Commerce, 2007). Causes of
poor water quality include wind-driven transport of suspended particulates; the
presence of soluble nutrients; decomposition; transport of mangrove detritus;
seagrass decomposition with associated biologic activity; and naturally-occurring
low dissolved oxygen at night attributed to plant respiration (CSA, 1991). The Bay
has shown man-made contaminants with freshwater inputs (U.S. Department of
Commerce, 2007). Elevated nutrients in the Bay have been documented due to
releases from the C-111 Canal and other drainage modifications (Lodge, 2005).
The C-111 Canal is the southernmost canal of the Central and Southern Florida
(C&SF) Project, completed in 1967 and operated by the SFWMD. The C-111 drains
agricultural areas in south Miami-Dade County and discharges into Manatee Bay
(Barnes Sound) west of Key Largo. The canal functions are: to supply water to the
eastern panhandle of Everglades National Park; to prevent saltwater intrusion (with
the construction of a water control structure to prevent the inland movement of salt
water), and; to provide flood protection for upstream agricultural uses (SFWMD,
1991). Large episodic releases of freshwater have occurred from the C-111 basin
into Card Sound and Barnes Sound. These releases have been due to the periodic
opening of the S-197 structure from the mouth of the C-111 Canal to alleviate
upstream flooding (SFWMD, 1991). They have had severe impacts on marine biota
and may have impacted water quality in the estuary due to the potential presence of
suspended sediments containing contaminants from the urban and agricultural
areas of south Miami-Dade County (SFWMD, 1991). These impacts are exacerbated
by the tendency of large volumes of freshwater to move as freshwater pulses and by
the restricted circulation and increased residence time of water in Card Sound and
Barnes Sound.
The C-111 spreader canal is one of the Comprehensive Everglades Restoration Plan
(CERP) projects. This project will help restore the quantity, timing, and distribution
of water delivered to Florida Bay via Taylor Slough, improve hydroperiods and
hydropatterns in the Southern Glades and Model Lands, and return coastal zone
salinities in western Florida Bay as close as possible to pre-drainage scenarios.
The recommended plan for the "Western" part of the project (Project
Implementation Report 1) includes the 590-acre Frog Pond detention area and a
225 cubic feet per second (cfs) pump station; creating a mound of groundwater to
the south and west, by reducing groundwater seepage to the east and improving
water deliveries (quantity, timing, and distribution) to eastern and central Florida
Bay. It also includes a second 225 cfs pump station and modifications to increase
the water level in the Aerojet Canal to further reduce groundwater seepage to the
east. A Draft Project Implementation Report and Draft Environmental Impact
Statement was completed in 2009 and published in the Federal Register on April 24,
2009. Expedited construction of the C-111 Spreader Canal Western Project began in
January 2010.
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The "Eastern" (Project Implementation Report 2) project will replace existing
portions of the lower C-111 Canal with a spreader canal to enhance sheetflow to
Florida Bay, and restoration efforts within the Southern Glades and Model Lands.
Due to numerous uncertainties associated with the actual spreader canal feature, a
spreader canal design test is being implemented to gain information that will guide
planning efforts for the Eastern project. The Eastern project will address the
restoration of the remainder of the project area through such features as a spreader
canal and backfilling the C-111 Canal.
Biscayne Bay is a potential source of poor water quality to the FKNMS due to flows
of various types from the City of Miami, other local municipalities, and Miami-Dade
County (CSA, 1991). North Biscayne Bay, extending from Dumfounding Bay to
Rickenbacker Causeway, is contaminated by large numbers of man-made sources
including manufacturing, boat building and repair, urban runoff, raw sewage from
illegal connections, degraded systems and overflows during heavy rains (CSA,
1991). The Miami River has the poorest water quality in Biscayne Bay (CSA, 1991).
Offshore disposal of dredged Miami River sediments may potentially have
detrimental effects on the reef tract due to longshore transport from the north (CSA,
1991).
C. Policy Framework:
GOAL 202: The environmental quality of Monroe County's estuaries, nearshore
waters (canals, harbors, bays, lakes and tidal streams,) and associated marine
resources shall be maintained and, where possible, enhanced. [9J-5.012(3)(a); 9J-
5.013(2)(a)]
Objective 202.1: Monroe County shall work cooperatively with the U.S.
Environmental Protection Agency (EPA), the Florida Department of Environmental
Regulation (DER), the South Florida Water Management District (SFWMD), and the
National Oceanic and Atmospheric Administration (NOAA) to develop and
implement the Water Quality Protection Program for the Florida Keys National
Marine Sanctuary. Pursuant to the Florida Keys National Marine Sanctuary Act (H.R.
5909), this program shall be enacted no later than July/August 1993. [9J-
5.012(3)(b)2; 9J-5.013(2)(b)2]
Policy 202.1.1: Monroe County shall coordinate with EPA, DER, SFWMD and NOAA
to determine the scope of studies required to document pollutant loads for Florida
Keys waters. Phase I of the Development Plan for the Florida Keys National Marine
Sanctuary Water Quality Protection Program (EPA and DER, in preparation),
recommends several studies are undertaken in order to:
1. provide data to document relationships between water quality and
declines in seagrass beds and coral communities; and
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2. to provide the basis for institutional and regulatory changes which will
protect against further declines in the quality of confined and nearshore
waters and their biotic communities.
Recommended studies include the following:
1. monitoring to characterize the nutrient inputs to groundwater;
2. data collection and modeling in order to understand the transportation of
groundwater nutrients to marine coastal waters;
3. monitoring to characterize the constituents within stormwater based on
use, as well as determination of what percentage of stormwater results in
overland flow to marine coastal waters;
4. data collection pertaining to natural nutrient regeneration due to
decomposition of floating Sargassum and seagrass within confined water
bodies;
S. evaluation of the relative contributions of point source discharges,
groundwater input, stormwater overland flow, natural decomposition of
organic matter, and other mechanisms of nutrient input and potential for
further declines in water quality within the confined waters of the Florida
Keys National Marine Sanctuary;
6. monitoring of water, sediment and biotic parameters for confined and
nearshore waters; and
7. development of potential engineering solutions applicable to the Florida
Keys, with cost estimates, for selected representative areas of confined waters
that are experiencing poor water quality.
By January 4, 1997, Monroe County shall seek to enter into an agreement with
the EPA, DER, SFWMD, and NOAA which shall describe the responsibilities of
each agency and of the County in each of these studies. Monroe County shall:
1. obtain and/or make available the necessary funds to complete the study
tasks for which it is responsible; and
2. execute those tasks in accordance with the timeframes outlined by the
agreement.
Special studies to be undertaken by Monroe County as identified in other
elements of the Monroe County Year 2010 Comprehensive Plan shall be
coordinated with these special studies. Specifically:
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1. the scope of work for the Sanitary Wastewater Master Plan shall be
developed so as to include special studies required to assess pollutant loadings
to ground and nearshore waters from sanitary wastewater facilities (See
Objective 901.4 and related policies);
2. the scope of work for the Stormwater Management Master Plan shall be
developed so as to include special studies required to assess:
a) non-point source contributions to surface water discharges from
stormwater; and
b) non-point source contributions to groundwater from stormwater (See
Drainage Element Objective 1001.3 and related policies); and
3. the scope of the Live-Aboard Study shall be developed so as to collect data
required to determine pollutant loadings from live-aboard vessels (See Policy
202.4.2). [9J-5.012(3)(c)1,3 and 13; 9J-5.013(2)(c)1]
Policy 202.1.2: Monroe County shall coordinate with EPA, DER, SFWMD and NOAA
during completion of Phase II of the Florida Keys National Marine Sanctuary Water
Quality Protection Program. Pursuant to the Florida Keys National Marine Sanctuary
Act(H.R. 5909), Phase II shall:
1. adopt or revise, under applicable Federal and State laws, applicable water
quality standards for the Sanctuary;
2. adopt enforceable pollution control measures (including water quality-
based effluent limitations and best management practices) and methods to
eliminate or reduce pollution from point and nonpoint sources; and
3. establish a comprehensive water quality monitoring program to:
a) determine the sources of pollution causing or contributing to existing or
anticipated pollution problems in the Sanctuary;
b) evaluate the effectiveness of efforts to reduce or eliminate those sources of
pollution; and
c) evaluate progress toward achieving and maintaining water quality
standards and toward protecting and restoring the coral reefs and other living
marine resources of the Sanctuary. [9J-5.012(3)(c)1,2,3 and 8; 9J-5.013(2)(c)1
and 6]
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Policy 202.1.3: Within six months following completion of the Water Quality
Protection Program by DER, Monroe County shall:
1. review the County's policies and regulations pertaining to water quality
protection; and
2. shall draft and complete revisions, as appropriate, to the County's policies
and regulations, including the Land Development Regulations and other
sections of the Monroe County Code, as appropriate, to comply with the
requirements and intent of the Water Quality Protection Program. [9J-
5.012(3)(c)1,2,3 and 8; 9J-5.013(2)(c)1 and 6]
Policy 202.1.4: Within six months following completion of the Water Quality
Protection Program by DER, Monroe County shall seek to enter into an agreement
with EPA, DER, SFWMD and NOAA which shall describe the responsibilities of each
agency and of the County in the water quality monitoring program. Monroe County
shall:
1. obtain and/or make available the necessary funds to complete the
monitoring program tasks for which it is responsible; and
2. execute those tasks in accordance with the timeframes outlined by the
agreement. [9J-5.012(3)(c)1,2,3 and 8; 9J-5.013(2)(c)1 and 6]
Policy 202.1.5: Monroe County shall continue to maintain the Monroe County
Department of Marine Resources with adequate staff and funding to support the
development and implementation of the Florida Keys National Marine Sanctuary
Management Plan, including the Water Quality Protection Program. [9J-
5.012(3)(c)1,2,3 and 8; 9J-5.013(2)(c)1 and 6]
Policy 901.4.4: By the effective date of this Plan, the County shall enter into an
agreement with EPA, DER, SFWMD and NOAA regarding the scope of studies
required to document pollutant loads from OSDS, cesspits, package treatment
plants, and other point and non-point sources on the Florida Keys into surrounding
waters. These studies shall be executed according to the terms of the agreement, in
coordination with the Water Quality Protection Program for the Florida Keys
National Marine Sanctuary. Upon execution of this agreement, the scope of the
Sanitary Wastewater Master Plan shall be adjusted accordingly.
Objective 901.5: Monroe County shall regulate land use and development to
conserve potable water, and protect the functions of natural drainage features and
groundwater from the impacts of sewer systems.
Policy 901.5.1: By January 4, 1997, in conjunction with the development of the
Sanitary Wastewater Master Plan, the County shall initiate an interlocal agreement
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with the DER and other state and federal agencies to develop a water quality
monitoring program. The program shall identify and analyze the individual and
cumulative impacts of development, especially wastewater treatment systems, and
establish remedial actions to correct identified deficiencies which degrade
nearshore water quality. Monroe County shall consider and utilize to the furthest
extent possible,the management plan being developed by NOAA under the direction
of DER and EPA. All monitoring procedures shall be approved by the DER and EPA
for compliance with Quality Assurance requirements (F.A.C., 17-160 and 40 CFR
Part 136), to ensure that proper quality control guidelines are followed during data
collection and reporting.
Policy 901.5.2: By January 4, 1998, the existing and/or available results of the
comprehensive water quality monitoring program shall be analyzed and reported to
document specific problem areas which may be in violation of federal or state
standards or which may be defined through scientific study, as a threat to the
continued maintenance of high levels of water quality or to specified biotic
communities. Upon confirmation of any problem areas, priorities for the
construction of alternate wastewater facilities shall be reevaluated, within the
context of the Monroe County Sanitary Wastewater Master Plan, with those areas in
greatest need given highest priority.
Policy 901.5.14: Monroe County shall revise the Land Development Regulations to
incorporate the conclusions and recommendations of the EPA's water quality
protection program as those findings become available.
GOAL 1001: Monroe County shall provide a stormwater management system which
protects real and personal properties, and which promotes and protects ground and
nearshore water quality.
Policy 1001.1.1: Water Quality Level of Service Standards - Minimum Water
Quality:
1.All projects shall be designed so that the discharges will meet Florida State
Water Quality Standards as set forth in Chapters 17-25 and 17-302, F.A.C,
incorporated herein by reference. In addition, all projects shall include an
additional 50 percent of the water quality treatment specified below, which
shall be calculated by multiplying the volumes obtained in Section (a) by a
factor of 1.5 , Retention/Detention Criteria (SFWMD Water Quality Criteria
3.2.2.2):
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a) Retention and/or detention in the overall system, including swales, lakes,
canals, greenways, etc., shall be provided for one of the three following
criteria or equivalent combinations thereof:
(1) Wet detention volume shall be provided for the first inch of runoff from
the developed project, or the total runoff of 2.5 inches times the percentage
of imperviousness, whichever is greater.
(2) Dry detention volume shall be provided equal to 75 percent of the above
amount computed for wet detention.
(3) Retention volume shall be provided equal to 50 percent of the above
amounts computed for wet detention.
b) Infill residential development within improved residential areas or
subdivisions existing prior to the adoption of this comprehensive plan must
ensure that its post-development stormwater run-off will not contribute
pollutants which will cause the runoff from the entire improved area or
subdivision to degrade receiving water bodies and their water quality as
stated above.
c) New Development and Redevelopment projects which are exempt from
the South Florida Water Management District permitting process shall also
meet the requirements of Chapter 40-4 and 40E-40, F.A.C.
Policy 1001.1.7: By January 4, 1997, Monroe County shall work with the SFWMD
through the existing interlocal agreement to adopt and implement appropriate
stormwater quality evaluation and estimation criteria and techniques for
incorporation into the County's Stormwater Management Ordinance and Land
Development Code.
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D. Strategies:
• Goal 202 directs Monroe County to maintain and enhance nearshore water
quality and the associated marine resources. To implement these policies,
Monroe County adopted the Sanitary Wastewater and Stormwater Master Plans
and utilized the County's limited financial resources to address existing
wastewater and stormwater issues. The County participates in the Water
Quality Protection Program and continues to coordinate with the State and
federal agencies, and nonprofit organizations on the health and integrity of
environmentally sensitive lands and marine resources. The County should
review and revise, as appropriate, the existing stormwater regulations to further
reduce pollutant discharges into ground and surface waters from stormwater
runoff.
• The pending EPA Water Quality Standards for the State of Florida's Lakes and
Flowing Waters and Marine Systems, 40 CFR, part 131, may have impacts on
both existing and proposed facilities in the County. The mandates associated
with this program may introduce additional requirements for treatment and
result in further improvements to both regional and small private facilities. The
County should continue to focus on these programs and mandates and address
them as appropriate.
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Issue Category#1(a):Numeric-Nutrient Criteria Rule
A. Background: The Federal Clean Water Act provides the statutory basis for
State water quality standards programs. The regulatory requirements governing
these programs (Water Quality Standards Regulation) are published in 40 CFR 131.
Section 303(d) of the Clean Water Act requires all states to develop a list of priority
surface waters that do not meet applicable water quality standards (impaired
waters) after implementation of technology-based effluent limitations. State has
imposed specific nutrient criteria on Monroe County via Ch. 99-395, Laws of Florida,
amended by Ch. 2001-337 & 2004-455, Laws of Florida & later included in statues
via Ch. 2010-201, Laws of Florida (pages 61-62). Florida currently employs
narrative nutrient standards to guide the management and protection of its surface
waters; standards that were previously reviewed and approved by the U.S.
Environmental Protection Agency (EPA). Florida conducts site-specific assessment
of the proposed discharges for a project to determine whether the proposed action
will cause an "imbalance".
As a result of this commitment, Florida FDEP has collected significantly more water
quality data than any other state. Greater than 30 percent of all water quality data in
the EPA national water quality database comes from Florida, which was the first
state in the nation to implement comprehensive urban stormwater management
regulations.
B. Analysis: In July 2008, several environmental groups initiated a lawsuit to
force USEPA to establish numeric nutrient criteria (versus narrative standards) for
all of Florida's surface waters. By letter dated January 14, 2009, EPA notified FDEP
that numeric water quality standards for nutrients would be necessary for the State
to comply with the requirements of the Clean Water Act. The State of Florida's
efforts to establish primarily freshwater numeric nutrient criteria had been ongoing
for at least six years. With a lawsuit in the background, the efforts to establish
numeric criteria were accelerated and became litigation driven. On August 19,
2009, EPA settled the lawsuit by entering into a consent decree with the
environmental groups whereby EPA agreed to establish numeric nutrient criteria
for all lakes, streams, and canals by January 2010, to be implemented by October
2010.
In the preamble to their rule, EPA states that they were unable to find a cause-and-
effect relationship between nutrient concentration and biological response for
flowing waters like streams and rivers. In the absence of that cause-and-effect
relationship, concern has been expressed that, "...there can be no certainty that the
money14 and human resources devoted to reduce nutrient content in a stream or
14 While the EPA estimates implementation costs between $135 million and $236 million annually,
the state agriculture department, working with the University of Florida Agricultural Resource
Economics Department, estimated the implementation costs just for agricultural land uses at
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river will result in any measurable improvement in the biological condition of that
stream or river. Without this linkage, implementation of the EPA criteria would
require reduction of nutrient concentrations, in some cases to levels below natural
background.15
Florida wastewater utilities believe that expensive reverse osmosis technologies
will have to be employed in order for them to comply with the requirements of their
point-source discharge permits. "These technologies are not only costly to
implement and maintain, but they require an enormous amount of energy to
operate."
From the EPA website:
EPA is setting Numeric Nutrient Standards in two stages - one rule for inland water
bodies established in the fall of 2010 and a second rule for estuaries and coastal water
that is to be proposed in the fall of 2011. Implementation of the inland water bodies
rule was delayed for 15 months.
On April22, 2011, the FL Department of Environmental Protection (FDEP)submitted a
petition to EPA's Administrator Jackson requesting her to withdraw EPA's January
2009 determination that numeric nutrient criteria are necessary in Florida, repeal
Federal rulemaking completed in November 2010 to establish such criteria for inland
lakes and streams, and refrain from proposing or promulgating any further numeric
nutrient.
The petition outlines FDEP's plans to undertake its own rulemaking for nutrient
criteria for state waters. The projected rulemaking schedule calls for a Notice of Rule
Development in June, a rule development and public outreach process through the
summer and early fall of 2011, and adoption of a final rule in January 201Z to be
followed by a legislative ratification process under Florida law.
On June 13, 2011 EPA sent an initial response to FDEP's petition. EPA supports FDEP's
commitment to recommence its rulemaking efforts for both inland and estuarine
waters. EPA recognizes that states have the primary role in establishing and
implementing water quality standards for their waters. Therefore, EPA is prepared to
withdraw the federal inland standards if FDEP adopts, and EPA approves, their own
protective and scientifically sound numeric standards. In addition, EPA is prepared to
adjust the timetables for implementing the inland rule and proposing our estuarine
between$900 million and$1.6 billion annually and could result in the loss of more than 14,000 jobs.
http:I/www.freshfromflorida.com[press/2 011/062 42 011.
15Testimony of Rich Budell, Director of the Florida Department of Agriculture and Consumer Services'
Office of Agriculture Water Policy,appearing before the U.S. House Committee on Transportation and
Infrastructure Subcommittee on Water Resources and Environment August 9,2011.
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and coastal waters rule if FDEP's rulemaking efforts progress in accordance with
FDEP's proposed schedule to avoid overlap with the final stages of the state
rulemaking process.
EPA will continue to work closely with the state and local communities to protect and
restore Florida's waters.
The deadlines for South Florida canals have been extended until August 2012. In
addition, timelines for development of criteria for estuarine and for coastal waters
have also been extended are expected to now be proposed by November 2011 and
promulgated by August 2012.
EPA will undergo a peer review through its Scientific Advisory Board for both the
South Florida canals as well as estuarine and coastal waters likely over the next six
to twelve months, which will also review all of the economic studies and render an
opinion on the likely costs of implementation.
C. Policy Framework:
Policy 901.5.14: Monroe County shall revise the Land Development Code to
incorporate the conclusions and recommendations of the EPA's water quality
protection program as those findings become available.
D. Strategies:
• It is recommended the County monitor the continued development and
implementation of these rules. The County should continue to press for
adoption of the Florida Keys Reasonable Assurance Documents (FKRADs) as the
Numeric Nutrient Criteria for local near-shore waters. Pursuant to Policy
901.5.14, revisions to the Plan and the LDC should be considered upon
finalization and implementation of the Numeric Nutrient Standards Rule.
• Additionally, it is recommended that the County review the Wastewater Master
Plan and the Stormwater Master Plan for compliance with the final Rule since
projects may require retrofitting or engineering design improvements to
regional or small private facilities.
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Issue Category#1(h): Solid Waste
A. Background: Solid waste management is a critical issue in the Florida Keys.
While problems of landfill sitings, facilities, financing, and hazardous waste disposal
have increased throughout the County, the unique setting of the Keys makes waste
management even more difficult. The geographic isolation, the limited land area, the
environmental constraints, and the presence of nationally significant natural
resources adds to the challenge of responsibly and efficiently managing the Keys'
solid waste stream.
B. Analysis: Solid waste generation in the County has increased each year from
1998 to 2009, showing a general increase over time. Although solid waste generation
is expected to increase as the population increases,the solid waste tonnage generated
in the County will also fluctuate with natural and economic events. For example,total
tonnage values significantly increased from 2004 to 2005, this increase reflects
approximately 35,000 tons of additional waste due to tropical storms events that
produce excess debris. Inversely, tonnage values significantly dropped during the
years of 2007 and 2008, at which time major economic problems throughout the
country were prevalent, causing less tourism,less consumption of goods, and drops in
the County's population. Although, these events will not occur on an annual basis,
general trends show that the steady increase of solid waste generated within the
County will continue as population increases.
The tourism industry in the Florida Keys is another large factor in solid waste
generation that needs to be accounted for in projected demands calculations. In 2009
the Monroe County Tourist Development Council estimated 3.3 million tourist visited
the County and future tourism will continue to rise as general population increases,
thus having a serious impact on the solid waste generation within the County.
Any future declines will also reflect the diligent efforts by the citizens of the County to
reduce the amount of solid waste they generate, through the conscious consumption
of goods, composting, mulching or other sustainability efforts. Additional factors
which are less easily quantifiable could also affect solid waste generation. The
amount of construction taking place in the County, and thus the amount of
construction debris being disposed of, also significantly affects the total amount of
solid waste generated. Periods with less construction could have contributed to the
decline in total waste generation. Finally, the weather affects the rate of vegetative
growth, and therefore affects the amount of yard waste generated. Drier years could
result in less total waste generation.
The solid waste generated in the County is comprised of a variety of materials. Yard
waste, paper products, construction debris, and miscellaneous material comprise the
four largest components of the solid waste stream. Of these, yard waste is by far the
largest component, with over 3,700 tons generated between January 1, 2009 and
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December 31, 2009. This constitutes 31 percent of the total 12,100 tons of waste
generated in the PWD-DSW/R service area.
The potential for recycling is high. The recyclable materials, paper products, yard
waste, wood (a portion of construction and demolition debris), plastics, ferrous
materials, aluminum, and glass comprise a total of approximately 70 percent of the
County solid waste stream.
The "Monroe County Recycling Program" was initiated in September 1989. Initial
activities included the purchase of four multi-material recycling containers and the
establishment of neighborhood recycling centers as recycling drop off sites. Within
two years of the initiation of the County's recycling program, the City of Key West and
the Middle Keys area, including the City of Marathon, had established curbside
collection for 18,000 residential units including both single and multi-family
residential units. Since 1989, the County has expanded its recycling program to
include all residential communities within the County on a voluntary basis.
Currently, the County's recycling program consists of a voluntary curbside collection
system, recycling centers at each of the solid waste transfer stations, and voluntary
commercial collection. Recycling programs related to commercial establishments
have been developed and put in place. The Monroe County School District has
developed and implemented programs at all County schools. County, State and federal
agencies have also initiated recycling programs. New commercial developments are
required to submit a study to show how waste will be reduced and recycled from
clearing through on-going business.
As previously noted, the County is contracted with WMI for solid waste haul out.
Under the terms and conditions of the contract with WMI, solid waste is collected by
franchisees and taken to the three trash transfer facilities. At these facilities, the solid
waste is transferred to trucks for hauling out of the County. The solid waste hauled
out of the County includes non-recyclable and recyclable materials. Recyclable
materials are being and will continue to be separated from the solid waste stream to
the maximum extent possible at the source.
The County's residential curbside collection is facilitated by four franchise
contractors. Each vendor is contracted to collect recycling from a defined service area
and are as follows: (1) Stock Island to Seven Mile Bridge [Waste Management Inc.], (2)
North End of Seven Mile Bridge to Mile Maker 72 [Marathon Garbage Services], (3)
Mile Marker 91 to the County line [Keys Sanitary Service], and (4) Ocean Reef Club
[Ocean Reef Disposal].
The education program for the residents includes television advertisements,
newspaper,radio and printed material.
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In addition to the curbside collection, recycling centers have been made available to
the residents as part of County's recycling program. The current drop off centers are
located at (1) Cudjoe Key Transfer Station (MM 21.5, Blimp Road), (2) Long Key
Transfer Station (MM 68), and (3) Waste Management Recycling Center (MM 100.2,
300 Magnolia St. Key Largo). These locations accept recyclable material that coincides
with curbside collection of recyclable material. In addition to typical recyclable
materials (paper, plastic, glass, and metals),the Key Largo Recycle Center also accepts
electronic waste (E-waste) and household hazardous wastes.
The hospitality industry, including hotels, motels, guest houses, bars and restaurants,
are also encouraged to establish recycling programs. Cardboard, glass, aluminum and
office paper make up the largest components of the recyclable fraction of the
hospitability industry. Lending institutions, hospitals, and other contributors of
major amounts of white paper and computer paper have been encouraged to
participate in recycling those materials. Recycling audits done on the premises have
helped businesses to determine the amounts of materials with the potential to
recycle. Commercial generators of all sizes have established programs to collect the
various materials.
Collections of recyclable materials from commercial entities are voluntary and
conducted on individual sites, and by individual businesses. Some businesses collect
and transport materials to county recycling centers. There are four franchise waste
companies offering commercial recycling services for recycling in the Florida Keys.
The County has implemented recycling programs at most County facilities. Materials
collected include all materials that are collected curbside. Recycling is encouraged,
but not mandatory at present.
The Monroe County School Board has implemented recycling programs at all County
school facilities and collects all recyclables that are collected curbside.
In-service training for faculty and staff is offered by Monroe County PWD-DSW/R
staff. Recycling curriculum and recycling projects for teachers are offered through
cooperative arrangements with the Monroe County School District. The Monroe
County School District has a Solid Waste Reduction Plan in place. The Florida Keys
Community College has also implemented a recycling program.
The United States military facilities located in the County participate in recycling
programs at all facilities by collecting office and computer paper, cardboard, and
aluminum which are currently being recycled at non-residential facilities. Curbside
collection has been established for all military residential areas and includes
collection of yard waste which is turned into mulch for use on military facilities.
Yard waste comprises the largest percentage by weight and volume of the County's
waste stream. However, yard waste is currently collected as part the solid waste
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stream and hauled out of the County. Residential yard waste mulching programs
were implemented in the past, but discontinues due to limited demand, the spread of
contagious tree diseases, and contamination concerns. Yard waste is collected from
residential dwellings under various arrangements by the franchise service providers.
Currently, mulching takes place at the three locations within the County,but is limited
to County funded maintenance of public lands and right-of-ways. Future
consideration of a yard/organics waste program should be revisited in the near
future, in order to institute new means and methods to reduce current quantities of
organic waste being hauled out of the County.
A revised comprehensive program for public education and awareness of recycling is
currently in development and is being implemented for the entire County. Updated
brochures, an on-line newsletter, press releases, and media interviews are prepared
on a regular basis by PWD-DSW/R.
Currently, the County conducts educational programs that instill awareness of waste
management issues; encourage the participation of children in recycling efforts,
promote classroom activities, extracurricular events and special competitions. A
"Recycling Education and Awareness Program" for grades K-12 is in place and being
taught throughout the school system. County staff currently assists, promotes and
coordinates educational activities for the public school system. Materials have been
developed for use in the classroom which includes puppet programs and video
presentations. School presentations are linked to Sunshine State Standards (Florida
Department of Education Standards).
Civic groups, homeowner associations, condominium associations, professional
associations, the hospitality industry, business entities, and government agencies,
including the State parks and military facilities have been targeted for recycling
presentations and activities. On-line newsletters, event announcements and
brochures have been developed by PWD-DSW/R for the use of these groups.
Recycling presentations, activities and materials have been developed for use by all
participating government agencies. They are available upon request and on the
County Solid Waste Department's section of the County website.
A list of all local newspapers, radio stations and television stations has been compiled.
News releases and public service announcements are sent regularly to all local
newspapers and radio stations. Paid advertisements have been utilized for
publicizing special recycling events. Brochures have been prepared and distributed
and flyers to promote recycling events have been circulated throughout the County by
PWD-DSW/R.
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C. Policy Framework:
Policy 101.1.1: Monroe County shall adopt level of service (LOS) standards for the
following public facility types required by Chapter 9J-5, F.A.C: roads, sanitary sewer,
solid waste, drainage, potable water, parks and recreation, and paratransit. The LOS
standards are established in the following sections of the Comprehensive Plan:
3. The LOS for solid waste is established in Solid Waste Policy 801.1.1;
Policy 215.1.1: Monroe County shall adopt level of service standards (LOS) for the
following public facility types required by Chapter 9J-5, F.A.C: roads, sanitary sewer,
solid waste, drainage, potable water, parks and recreation, and mass transit. The
LOS standards are established in the following sections of the Comprehensive Plan:
3. The LOS for solid waste is established in Solid Waste Policy 801.1.1;
Objective 801.1: Monroe County shall ensure that solid waste collection service
and disposal capacity is available to serve development at the adopted level of
service standards, concurrent with the impacts of such development.
Policy 801.1.1: Monroe County hereby adopts the following level of service
standards to achieve Objective 801.1, and shall use these standards as the basis for
determining facility capacity and the demand generated by a development.
Level of Service Standards:
1. Collection Frequency:
Residential: a minimum of one time per two weeks - domestic refuse a
minimum of one time per two weeks -yard trash Commercial: by contract
2. Disposal Quantity: 5.44 pounds per capita per day or 12.2 pounds per day
per ERU (Equivalent Residential Unit) Haul Out Capacity: 95,000 tons per
year or 42,668 ERUs.
3. Duration of Capacity:
Sufficient capacity shall be available at a solid waste disposal site to
accommodate all existing and approved development for a period of at three
from the projected date of completion of the proposed development or use.
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Policy 801.1.2: By January 4, 1997, Monroe County shall adopt Land Development
Code which provide a Concurrency Management System (See Capital Improvements
Policy 1401.4.5). The Concurrency Management System shall ensure that no permits
will be issued for new development unless adequate solid waste collection and
disposal facilities needed to support the development at the adopted level of service
standards are available concurrent with the impacts of development.
Policy 801.1.3: All improvements for replacement, expansion or increase in
capacity of solid waste collection and disposal facilities shall be compatible with the
adopted level of service standards for the facilities.
Policy 801.1.4: Monroe County shall rely upon public and/or private solid waste
collection systems, with the County providing for solid waste disposal facilities to
meet the needs of all incorporated and unincorporated areas of the County
excluding the City of Key West.
Objective 801.3: By January 4, 1998, Monroe County shall implement solid waste
disposal methods which meet the projected demands for disposal. These disposal
demands shall be met either by continuation of the County's current haul out
contract with Waste Management, Inc. (WMI), or by other means as determined by
the Monroe County Department of Environmental Management.
Policy 801.3.1: The Solid Waste Task Force or other appropriate committee shall
continue in an advisory capacity to the Board of County Commissioners on all solid
waste matters.
Policy 801.3.2: By January 4, 1998, Monroe County shall support a Solid Waste and
Resource Recovery Authority for the management of the Monroe County solid waste
program through either the public sector or privatization system.
Policy 801.3.3: The Cudjoe Expansion landfill shall remain open for emergency
landfilling capabilities or future use. The Key Largo, Long Key and Old Cudjoe
landfills shall continue to undergo the Florida Department of Environmental
Regulation (DER) landfill closure process.
Policy 801.3.4: Monroe County shall continue to support City of Key West's efforts
to provide their own solid waste management through the use of the most cost-
effective and environmentally sound technology.
Policy 801.3.5: By January 4, 1997, Monroe County, through the Department of
Environmental Management, shall complete preliminary engineering and
environmental assessments for a sludge, septage and/or leachate treatment and
disposal facility on Crawl Key.
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Policy 801.3.6: By January 4, 1998 Monroe County, through the Department of
Environment Management, shall construct a sludge, septage, and/or leachate
treatment and disposal facility on Crawl Key.
Policy 801.3.7: Through 1995, and subject to extension, Monroe County shall
contract for the haul-out disposal of solid waste including wet garbage, yard waste
and construction debris (minimum of 75,000 up to a maximum of 95,000 tons per
year),with the vendor responsible for processing construction debris.
Policy 801.3.8: Monroe County, through the Department of Environmental
Management, shall investigate and review for County implementation the latest
available technology for resource recovery and other alternative solid waste
management technologies to meet the solid waste processing and disposal needs
beyond 1995. Particular attention shall be given to the environmental effects and
cost of such technologies.
Policy 801.3.9: By January 4, 1997, Monroe County shall select a long-term
disposal and processing method that will handle the solid waste for the
unincorporated county, Key Colony Beach and Layton, and will begin the
development process for additional facilities if necessary.
Policy 801.3.10: By January 4, 1998, Monroe County shall implement solid waste
disposal methods to meet the projected disposal needs beyond 1995 either through
continuation of the WMI haul out contract or through the installation and initiation
of alternative solid waste disposal facilities developed in accordance with Policy
801.3.8.
Policy 801.3.11: By January 4, 1997, Monroe County shall update the provisions of
Sec. 9.5-494 of the Monroe County Land Development Code in order to ensure that
sufficient impact fee revenues are available to finance future solid waste facility
needs.
Policy 801.3.12 Monroe County shall establish an interim policy to avoid
consideration of new facility siting involving incineration technology until current
DER public health and environmental impact studies are completed and new DER
standards for incineration facilities are adopted.
Policy 801.3.13: Monroe County shall consider the environmental sensitivity of
land and the location of coastal high hazard areas in the siting of new solid waste
facilities.
Objective 1301.10: Monroe County shall increase intergovernmental coordination
efforts with the Department of Community Affairs (DCA), the Department of
Environmental Regulation (DER), the SFRPC, and the County's municipalities to
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develop and implement the most cost-effective and environmentally sound methods
of regional solid and hazardous waste management.
Policy 1301.10.1: Monroe County shall continue to negotiate an interlocal
agreement with the Cities of Key West, Key Colony Beach and Layton for the
consolidated handling, processing and disposal of solid waste.
Policy 1301.10.2: Monroe County shall continue coordination efforts with the DER
and other involved federal and state agencies to pursue funding for the
implementation of Monroe County's Solid Waste and Resource Recovery
Management Plans.
Policy 1301.10.3: Monroe County shall coordinate with and pursue with the
Florida Association of Counties for the State-wide enactment of beverage container
deposit laws.
Policy 1301.10.4: By January 4, 1998, Monroe County shall implement a County-
wide mandatory curbside recycling program for all residential units and continue
commercial recycling programs for all handling and disposal of newspapers, glass,
plastics and aluminum waste products in order to meet mandated state solid waste
requirements.
The County's policies appear to be adequate to provide protections for the
environment and the County's efforts to encourage voluntary recycling are
extensive. No comprehensive plan amendments are proposed at this time.
D. Strategies:
• Currently, mulching takes place at the three locations within the County, but is
limited to County funded maintenance of public lands and right-of-ways.
Consideration of a yard/organics waste program should be revisited in the near
future, in order to institute new means and methods to reduce current quantities
of organic waste being hauled out of the County.
• Although WMI projects that the Broward County Central Landfill's capacity will be
approximately met by the year 2027, WMI does have other facilities in the State
that will be able to facilitate the County's solid waste disposal needs well past the
planning period of this document (2030). Therefore, it will be necessary for the
County to research other means and methods to reduce solid waste generation,
improve recycling volume, compost and sustainably manage resources in the
County and reduce its impacts on other Florida Counties.
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Issue Category#1Ci): Marine and Terrestrial Litter
A. Background: Marine and terrestrial litter are the two primary types of solid
waste litter within the County; both types create adverse affects, on the natural
environment, animal species, the general aesthetics of local communities, and the
beauty of the Florida Keys.
B. Analysis: Marine litter originates from a variety of sources including
intentional and unintentional releases from recreational boaters, shoreline users,
commercial fishing operations, sport fishing and diving charters, and oceanic sources
such as merchant ships, cruise ships, and oil drilling vessels. In addition, litter on the
land blows into the waterways of the Keys. Fishing line disposal containers are
stationed on most fishing bridges within the County.
Terrestrial litter also originates from a variety of sources including both intentional
and unintentional releases from trash receptacles, commercial haulers, motorists,
pedestrians, and beach goers. Furthermore, animal infiltration of trash receptacles
can produce litter within residential communities, commercial area, and park
facilities.
Whether the litter is marine or terrestrial, it will have adverse effects on animal life
within the County. Entanglement and ingestion of litter can cause bodily injury,
illness and death to the wildlife within the Florida Keys. Endangered species such as
Key Deer face further danger of survival with the interaction of humans and their
litter. Exposure to litter may cause mortality by entanglement and disease. (U.S. Fish
and Wildlife Service, National Key Deer Refuge, 2000).
Litter can cause habitat destruction, which will eventually lead to the loss of a
sustainable environment for which the animal life needs to survive. Litter not only
causes physical damage to the environment, but also damages the aesthetics and
allure of the Florida Keys which naturally draws thousands of tourists to each year.
C. Policy Framework:
Policy 203.5.6: By the effective date of this Plan, Monroe County shall recommend
methods to improve boater education, based on the inventory of existing boater
education programs. The County's boater education program shall be designed and
implemented in coordination with the Cooperative Extension Service, Florida Sea
Grant, DNR and NOAA. It shall be consistent with recommendations of the Florida
Keys National Marine Sanctuary Management Plan. The boater education program
shall place particular emphasis upon the following:
S. litter and debris control regulations.
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D. Strategies:
• Controlling litter within the County will need to be addressed through improved
solid waste collection practices, animal/tamper proof waste receptacles,
community cooperation, clean-up efforts, education, and local laws. Section 21-
21(a) of the County's LDCs states, "No person shall place, cast, sweep, or deposit
anywhere within the county any refuse in such a manner that the same may be
carried, spread, or deposited by the elements upon any street, alley, parkway, or
other public place or into any occupied or unoccupied property or waterway."
Therefore, code enforcement should focus on persons dumping or littering.
• The County's education efforts should illustrate the impacts of litter upon animal
species and habitat.
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Issue Category#1(,�):Invasive Animals
A. Background: Escape of non-native animal species into the general
environment can have devastating impacts on naturally native plant and animal
species.
B. Analysis: The spread of the Burmese python and the red lionfish (among
others) into the Florida Keys demonstrates the need to address the introduction of
exotic wildlife. The County Biologist is a partner with the Florida Keys Invasive
Exotics Task Force.
C. Policy Framework:
Objective 207.4: Monroe County shall protect its native wildlife populations from
invasive exotic wildlife species.
Policy 207.4.1: By January 4, 1998, the Monroe County Biologist shall coordinate
with the FGFWFC and the FWS to develop a list of undesirable exotic wildlife species
(exclusive of horses, domestic dogs, and domestic cats).
Policy 207.4.2: By January 4, 1998, Monroe County shall adopt an exotic wildlife
ordinance which shall prohibit and/or restrict the sale and handling of listed
undesirable exotic species (exclusive of horses, domestic dogs, and domestic cats)
D. Strategies:
• The County should consider adoption of an invasive exotic wildlife ordinance
which shall prohibit and/or restrict the sale and handling of listed undesirable
exoticspecies.
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Issue Statement#2: Complete Wastewater and Drainage Upgrades.
Note: Background, Issue Analysis, Policy Framework and Strategies are divided into
two (2) categories each for this section: Wastewater and Stormwater.
Issue Category#2(a): Wastewater
A. Background: The sustainability of the marine ecosystem of the Florida Keys
(the "Keys") is dependent upon clear water with low nutrient loading. Treatment of
sewage and the disposal of wastewater within the County historically have been
accomplished through septic tanks, on-site treatment and disposal systems (OSTDS),
and small to intermediate sized privately-owned wastewater treatment package
plants. With expansion and growth, regional systems consisting of treatment plants
and centralized sewer have been built providing a greater level of collection and
treatment. Several sewer districts, both private and municipal, have been formed to
service more densely populated areas.
Notwithstanding the above accomplishments, the Keys face the challenge of obtaining
adequate funding sources to implement the extent of regional systems required to
meet guidelines established by State and federal mandates. To further complicate the
issue, in more sparsely populated areas, advanced methods of treatment are not
generally economically feasible. Regulatory pressure and the implementation of
numeric nutrient criteria increase the complexity of providing proper treatment of
sewage. Continued focus on appropriate sanitary sewer collection, treatment, and
disposal in this region with severely limited solid soils and land use density will
minimize ground and surface water contamination.
B. Analysis: Over the last 20 years, aerobic treatment units (ATU) for more
advanced onsite treatment and secondary treatment plants have been introduced.
Although they provide better treatment than septic tanks, including effluent
disinfection, ATUs are not an efficient means of removal of phosphorus and
nitrogen.
With the adoption of the Monroe County Sanitary Wastewater Master Plan (the
"Master Plan") in June of 2000, the County has implemented a program to address
these issues. The Master Plan addresses planned facilities, improvements, and
expansion of regional facilities as well as programs working with the Department of
Health (DOH) to administer code enforcement for septic tanks. The plan focuses on
utilizing regional systems for treatment in hot spots (areas of high density) and
alternative Best Available Technology (BAT) in cold spots (areas of low density).
Although originally planned to provide compliance by July of 2010, the Master Plan
has fallen short mainly due to a gap in funding. This section will compare the existing
service capacity against the level of service required for compliance with regulatory
standards for both existing and projected demands.
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The 2000 Master Plan identified 23,000 private onsite systems within
unincorporated Monroe County, made up of septic tanks, ATUs, and unknown
connections servicing a total of 4.88 million gallons per day (MGD). In addition, 246
small wastewater treatment plants (WWTP) were identified servicing another 2.40
MGD. The Master Plan called for several measures including the following:
• Replacement or upgrade of onsite systems to Onsite Wastewater Nutrient
Reduction Systems (OWNRS);
• Creation of 12 community collection systems, five of which are to be phased
into regional systems;
• Address hot spots with community systems by 2010; and
• Upgrade 17 facilities to BAT/Advanced Wastewater Treatment (AWT) by
2010.
In addition, facilities were to be upgraded to accommodate water reuse programs
and the distribution system was to be installed. The major drawbacks to reuse cited
in the Master Plan include the lack of large users and economic feasibility.
In the County's Annual Assessment Report Evaluating the Work Program Year 10
(May 2008),the DCA noted the following conclusions from the FDEP report to DCA:
• While progress had been made, there is a long way to go toward compliance in
terms of completion schedules and meeting the July 1, 2010 deadline.
• Dozens of small facilities relying on connection to central systems will be out of
compliance on that date.
• The same will likely be true of a number of homeowners served by septic tanks
and OSTDS.
• FDEP would do whatever it could within its power to promote compliance
assuming that the DOH would do the same to resolve the OSTDS requirements.
The Keys Wastewater Plan -November 2007 Report, prepared by the Monroe County
Engineering Division at the request of the Florida House of Representatives
Environmental and Natural Resources Council, identified progress of the individual
projects along with local government responsibilities for specific facilities. The
report included a summary of nine local governments and utility service areas
providing centralized systems within unincorporated Monroe County. The
executive summary of the report cited a funding gap of approximately $336 million
in meeting the July 2010 date for compliance.
In April 2010, the Florida Senate and House approved SB 2018 extending the
deadline for compliance to the end of 2015, and postponing fines and potential liens
against property owners. In addition, the bill authorized $200 million of State
funding for improvements; however, the source of funding remains unresolved.
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Meeting the 2015 extension requires a detailed financial plan to implement
necessary plant and infrastructure improvements. The funding gap of$330 million,
which has already stretched the County's capacity for debt service, continues to
broaden due to a delayed revenue stream resulting from delays in design and
construction of new systems. Subsidizing costs is consistent with County's policy.
The County is reluctant to impose assessments on residents for un-funded mandates
that could result in home forfeitures and financial hardship. The varying costs
among projects pose additional problems. For example, areas such as Cudjoe
Regional System, projected at $17,000 per EDU, costs up to three times as much as
other systems ranging from $5,000 to $10,000 per EDU. Supplemental funding is
necessary to bring the Cudjoe Regional System costs in-line with other systems to
avoid an unreasonable burden to a majority of residents.
The County looks to State and Federal assistance to make up the difference. Because
of uncertainties, all alternative avenues for funding need to be explored and
implemented. Without a detailed financial plan and diligent pursuit of funding
sources, there is concern that the 2015 extension may not be met.
In December 12, 1995, the Administration Commission found the 2010 Monroe
County Comprehensive Plan not in compliance and ordered facilitated
rulemaking/mediation to address outstanding issues. In July 1997, the
Administration Commission proposed Rule 28-20.100, F.A.C., which introduced the
concept of the Work Program requiring the following activities as it relates to
wastewater:
• Continued construction of wastewater facilities in hot spots begun in
previous year.
• Design and construction of additional wastewater treatment facilities in
accordance with the schedule of a wastewater master plan.
• Implementation of the FKCCS to establish development standards ensuring
that all new development not exceed the capacity the ecosystem's ability to
sustain impacts.
• Complete elimination of cesspits.
The FKCCS was tasked with providing specific recommendations, including
adequate capital funding, protection of the environment, ensuring private property
rights, providing for adequate affordable work force housing and meeting the goal of
reducing the State's role in regulatory oversight. With respect to wastewater, the
FKCCS used benchmarks to correlate impacts of nutrient loading on marine
ecosystems and the level of sustainable development.
The four key topics of discussion within the FKCCS include Terrestrial Habitat
Protection, Allocation and Distribution of Growth, Affordable Housing, and Funding.
Of the four topics, Allocation and Distribution of Growth, and Funding addressed
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recommendations related to wastewater. The Allocation and Distribution of Growth
is addressed through ROGO with the establishment of 2,548 additional residential
units within the County to be built over a ten-year period. The distribution of the
residential units involves many factors and various stakeholders, but the principles
of focusing new development and infill within partially developed areas and guiding
future growth towards areas with existing or planned/funded wastewater systems
are consistent with the goals of the FKCCS.
Finding adequate funding for the environmental and socioeconomic needs of the
Keys is a difficult issue. The County has a relatively small population and a high
number of tourists. The burden of playing catch-up with years of inadequate
treatment facilities combined with the increase in housing costs associated with the
tourist-based economy adds to the issue of affordable housing and economically
feasible solutions; however, all current infrastructure requirements and waste
disposal standards are to be upheld. Many potential sources for additional funding
were presented for discussion including establishing tolls, residential impact fees,
bed tax, Ad Valorem Tax, State and federal matching funds, and tourist-based sales
tax.
Although many tasks identified in the Master Plan remain incomplete, all are being
addressed. The remaining tasks consist mainly of costly capital improvement
projects for which funding remains the key issue to implementation.
In 2011, House Bill 7253 ratified Rule 28-20.140, F.A.C. The requirements for the
Monroe County Work Program were updated in this rule. Under the revised Work
Program, specific tasks and timelines are established to bring deficient systems into
compliance.
Among the rules are requirements for the Plan to restrict permits for new
development or redevelopment unless served by a central sewer system with
committed funding; permitted by DEP and physically under construction or with an
onsite sewage treatment facility shown to be in compliance with requirements of
Section 381.0065(4), F.S. Furthermore, the County must direct new and
redevelopment to areas with committed funding, permit, and physically under
construction.
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Rules specific to Wastewater Implementation include the following:
• By July 1, 2011, Monroe County shall annually evaluate and allocate funding for
wastewater implementation. Monroe County shall identify any funding in the
annual update to the Capital Improvements Element of the Comprehensive Plan.
• By July 1, 2011, Monroe County shall annually draft a resolution requesting the
issuance of $50 million of the $200 million of bonds authorized under Section
215.619, F.S., and an appropriation of sufficient debt service for those bonds, for
the construction of wastewater projects within the Florida Keys.
• By July 1, 2011, Monroe County shall develop a mechanism to provide accurate
and timely information and establish the County's annual funding allocations
necessary to provide evidence of unmet funding needs to support the issuance of
bonds authorized under Section 215.619, F.S., and to assure the timely
completion of work as necessary to fulfill any terms and conditions associated
with bonds.
• By July 1, 2011, Monroe County shall evaluate its wastewater needs and state
and federal funding opportunities and apply annually to at least one state or
federal grant program for wastewater projects and connections.
• By July 1, 2011, Monroe County shall develop and implement local funding
programs necessary to timely fund wastewater construction and future
operation, maintenance and replacement of facilities.
• By December 1, 2013, the County shall provide a report of addresses and the
property appraiser's parcel numbers of any property owner that fails or refuses
to connect to the central sewer facility within the required timeframe to the
Monroe County Health Department, Department of Environmental Protection,
and the Department of Community Affairs. This report shall describe the status
of the County's enforcement action.
• By December 1, 2013, Monroe County shall work with the owners of wastewater
facilities and onsite systems throughout the County and the Department of
Health (DOH) and the Department of Environmental Protection (DEP) to fulfill
the requirements of Sections 403.086(10) and 381.0065(3)(h) and (4)(1), F.S.,
regarding implementation of wastewater treatment and disposal. This will
include coordination of actions with DOH and DEP to notify owners regarding
systems that will not meet the 2015 treatment and disposal standards.
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Wastewater Projects and their associated timelines included in the rule amendment
are as follows:
1. Key Largo Wastewater Treatment Facility. Key Largo Wastewater
Treatment District is responsible for wastewater treatment in its service area
and the completion of the Key Largo Wastewater Treatment Facility.
a. By July 1, 2012, Monroe County shall complete construction of the South
Transmission Line;
b. By July 1, 2013, Monroe County shall complete design of Collection basin C, E,
F, G, H, I,J, and K;
C. By July 1, 2012, Monroe County shall complete construction of Collection
basins E-H;
d. By December 1, 2011, Monroe County shall schedule construction of
Collection basins I-K;
e. By July 1, 2011, Monroe County shall complete construction of Collection
basins I-K;
f. By July 1, 2011, Monroe County shall complete 50% of hook-ups to Key Largo
Regional WWTP;
g. By July 1, 2012, Monroe County shall complete 75% of hook-ups to Key Largo
Regional WWTP;
h. By July 1, 2013, Monroe County shall complete all remaining connections to
Key Largo Regional WWTP.
2. Hawk's Cay, Duck Key and Conch Key Wastewater Treatment Facility.
a. By July 1, 2012, Monroe County shall complete construction of Hawk's Cay
WWTP upgrade/expansion,transmission, and collection system;
b. By July 1, 2013, Monroe County shall complete construction of Duck Key
collection system;
C. By July 1, 2012, Monroe County shall initiate property connections to Hawk's
Cay WWTP;
d. By December 1, 2012, Monroe County shall complete 50% of hook-ups to
Hawk's Cay WWTP;
e. By July 1, 2013, Monroe County shall complete 75% of hook-ups to Hawk's
Cay WWTP; and
f. By July 1, 2014, Monroe County shall complete all remaining connections to
Hawk's Cay WWTP.
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3. South Lower Keys Wastewater Treatment Facility (Big Coppitt Regional
System).
a. By July 1, 2012, Monroe County shall complete 75% hookups to South Lower
Keys WWTP; and
b. By July 1, 2013, Monroe County shall complete all remaining connections to
the South Lower Keys WWTP.
4. Cudjoe Regional Wastewater Treatment Facility.
a. By July 1, 2011, Monroe County shall complete planning and design
documents for the Cudjoe Regional Wastewater Treatment Facility, the
Central Area (Cudjoe, Summerland, Upper Sugarloaf) collection system and
the Central Area Transmission Main;
b. By October 1, 2012, Monroe County shall initiate construction of Wastewater
Treatment Facility, Central Area Collection System and Central Area
Transmission Main;
C. By July 1, 2014, Monroe County shall complete construction of Wastewater
Treatment Facility, Central Area Collection System and Central Area
Transmission Main;
d. By February 1, 2012, Monroe County shall initiate construction of
Wastewater Treatment, Outer Area Collection System and Transmission
Main;
e. By February 1, 2015, Monroe County shall complete construction of Outer
Area collection and transmission main;
f. By July 1, 2014, Monroe County shall initiate property connections -
complete 25% of hook-ups to Cudjoe Regional WWTP;
g. By July 1, 2015, Monroe County shall complete 50% of hook-ups to Cudjoe
Regional WWTP; and
h. By December 1, 2015, Monroe County shall complete remaining hook-ups to
Cudjoe Regional WWTP.
C. Policy Framework:
Policy 101.5.4: Monroe County shall implement the residential Permit Allocation
and Point System through its Land Development Code based primarily on the Tier
system of land classification as set forth under Goal 105. The points are intended to
be applied cumulatively. Points shall be assigned to allocation applications that
propose development to be connected to a central wastewater treatment system
that meets the BAT/AWT treatment standards established by Florida Legislature
and Policy 901.1.1.
Objective 2023: Monroe County shall develop and implement permitting,
inspection, and enforcement procedures designed to reduce pollutant discharges
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into ground and surface waters from wastewater treatment plants. (See Goal 901
and related objectives and policies.)
Policy 701.9.7: By January 4, 1997, Monroe County shall adopt Land Development
Code which establish a Permit Allocation and Point System for new residential and
non-residential development (See Future Land Use Objectives 101.2, 101.3, and
101.5 and supporting policies). In developing the Point System, Monroe County shall
consider assigning a positive point rating to developments utilizing alternative
water collection systems such as cisterns, grey water reuse systems and wastewater
treatment plant effluent reuse which conserve potable water supply.
GOAL 901: Monroe County shall provide for the adequate, economically sound
collection, treatment, and disposal of sewage which meets the needs of present and
future residents while ensuring the protection of public health, and the maintenance
and protection of ground, nearshore, and offshore water quality.
Objective 901.1: Monroe County shall ensure that, at the time a development
permit is issued, adequate sanitary wastewater treatment and disposal facilities,
including wastewater treatment facilities and onsite sewage treatment and disposal
systems, are available to support the development at the adopted level of service
standards, concurrent with the impacts of such development.
Policy 901.1.1: Monroe County shall ensure that at a time a development permit is
issued, adequate sanitary wastewater treatment and disposal facilities are available
to support the development at the adopted level of service standards, concurrent
with the impacts of such development.
Permanent Level of Service Standards:
(A) The permanent level of service standards for wastewater treatment in
Monroe County are as provided in House Bill 1993 adopted by the 1999
Legislature.
(B) The County and the State shall actively engage in an educational program
to reduce demand for phosphate products.
(C) The County shall require mandatory pump-out of septic tanks and
require regular reports from qualified contractors to ensure proper septage
disposal.
Policy 901.1.2: By January 4, 1997, Monroe County shall adopt Land Development
Code which provide a Concurrency Management System (See Capital Improvements
Policy 1401.4.5). The Concurrency Management System shall ensure that no permits
will be issued for new development unless adequate sanitary wastewater treatment
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and disposal facilities needed to support the development at the adopted level of
service standards are available concurrent with the impacts of development.
Policy 901.1.3: All improvements for replacement, expansion, or increase in
capacity of sanitary wastewater treatment and disposal facilities shall be compatible
with the adopted level of service standards for the facilities.
Policy 901.1.4: Issuance of development permits shall be contingent upon the
submission of permits demonstrating compliance with applicable federal, state, and
local permit regulations for wastewater treatment and disposal facilities.
Policy 901.1.5: The Permit Allocation and Point System shall award positive points
for development proposed to be connected to a central wastewater treatment
system that meets the BAT/AWT treatment standards established by Florida
Legislature and Policy 901.1.1.
Policy 901.1.6: By January 4, 1998, Monroe County shall adopt permanent level of
service standards for package treatment plants and OSDS based on the findings of
the Sanitary Wastewater Master Plan and shall amend the Land Development Code
to include these standards.
Policy 901.1.5: The Permit Allocation and Point System shall award positive points
for development proposed to be connected to a central wastewater treatment
system that meets the BAT/AWT treatment standards established by Florida
Legislature and Policy 901.1.1.
Policy 901.1.6: By January 4, 1998, Monroe County shall adopt permanent level of
service standards for package treatment plants and OSDS based on the findings of
the Sanitary Wastewater Master Plan and shall amend the Land Development Code
to include these standards.
Objective 901.3: By January 4, 1997, Monroe County, through adoption of Land
Development Code including a Permit Allocation System for new residential and
non-residential development, shall ensure the maximum use of existing wastewater
treatment facilities to discourage the proliferation of urban sprawl.
Policy 901.3.1: The Permit Allocation and Point System for new residential and
non-residential development shall award positive points for development proposed
to be connected to a central wastewater system that meets BAT/AWT treatment
standards established by Florida Legislature and Policy 901.1.1.
Policy 901.3.2 The priorities for the extension and replacement of wastewater
collection, treatment and disposal facilities shall be based upon the following
priority level guidelines:
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Level One - Whether the project is needed to protect public health and water
quality, provide facilities and services, or to preserve or achieve full use of
existing facilities.
Level Two - Whether the project increases efficiency of use of existing
facilities, prevents or reduces future improvement costs, provides service to
developed areas lacking full service or promotes infill development.
Level Three - Whether the project represents a logical extension of facilities
and services within a designated service area.
Policy 901.3.3: Monroe County shall maintain a five-year schedule of capital needs
for wastewater treatment and disposal as part of the County Capital Improvements
Program. This program shall be updated annually consistent with Capital
Improvements Policy 1401.1.2 and in conjunction with the County's annual budget
process to ensure economic feasibility.
Objective 901.4: Monroe County shall implement findings of the Sanitary
Wastewater Master Plan, the County shall use the adopted Sanitary Wastewater
Master Plan as a guide for implementation of central sewer projects.
Policy 901.4.3: By January 4, 1997, Monroe County shall initiate a program of
testing alternative OSDS systems under actual operating conditions in order to
ascertain the feasibility of widespread application of such systems with nutrient
removal capabilities higher than standard septic systems.
Policy 901.4.4: By the effective date of this Plan, Monroe County shall enter into an
agreement with EPA, DER, SFWMD and NOAA regarding the scope of studies
required to document pollutant loads from OSDS, cesspits, package treatment plants,
and other point and non-point sources on the Florida Keys into surrounding waters.
These studies shall be executed according to the terms of the agreement, in
coordination with the Water Quality Protection Program for the Florida Keys
National Marine Sanctuary. Upon execution of this agreement, the scope of the
Sanitary Wastewater Master Plan shall be adjusted accordingly. (See Conservation
and Coastal Management Policy 202.1.1.)
Policy 901.4.5: By January 4, 1998, Monroe County shall adopt Land Development
Code which establish density criteria for OSDS based on site specific constraints and
prescribe the types of systems to be utilized based upon the results of the Sanitary
Wastewater Master Plan.
Policy 901.4.6: Upon adoption of the Sanitary Wastewater Master Plan by January
4, 1998, the minimal operational standards for package plants, collection systems,
pump stations, and disposal wells shall be those contained in the adopted Master
Plan.
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Policy 901.4.7: As part of the Sanitary Wastewater Master Plan, an inventory of all
wastewater treatment plants and OSDS areas shall be completed which identifies:
1.the entity having operational responsibility;
2. current rated plant capacity;
3. existing treatment status (number and type of hookups);
4. all future committed capacity (number and type of hookups);
S. all facilities which fall below level of service standards identified in the
Master Plan;
6. costs associated with improving those facilities to meet minimum level of
service standards;
7. funding sources and construction schedules for those improvements; and
8. average and peak flow design capacity for sanitary sewer facilities.
Policy 901.4.8: Upon adoption of the Sanitary Wastewater Master Plan, the County
shall seek legislative action to amend the Florida Administrative Code Chapter 10D-
6 to require HRS to administer and enforce the adopted standard for wastewater
treatment.
Policy 901.4.9: In the event Central Sewer Service becomes available (as defined
by Chapter 10D-6) to areas served by OSDS, owners of OSDS within such areas shall
have 365 days to connect to the central system.
Policy 901.4.10: In coordination with FKAA, DER, EPA, NOAA, or other appropriate
agencies, Monroe County shall prepare and distribute annual reports indicating the
status of the Sanitary Wastewater Master Plan.
Objective 901.4: Monroe County shall implement findings of the Sanitary
Wastewater Master Plan, the County shall use the adopted Sanitary Wastewater
Master Plan as a guide for implementation of central sewer projects.
Policy 901.4.3: By January 4, 1997, Monroe County shall initiate a program of
testing alternative OSDS systems under actual operating conditions in order to
ascertain the feasibility of widespread application of such systems with nutrient
removal capabilities higher than standard septic systems.
Policy 901.4.4: By the effective date of this Plan, Monroe County shall enter into an
agreement with EPA, DER, SFWMD and NOAA regarding the scope of studies
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required to document pollutant loads from OSDS, cesspits, package treatment plants,
and other point and non-point sources on the Florida Keys into surrounding waters.
These studies shall be executed according to the terms of the agreement, in
coordination with the Water Quality Protection Program for the Florida Keys
National Marine Sanctuary. Upon execution of this agreement, the scope of the
Sanitary Wastewater Master Plan shall be adjusted accordingly. (See Conservation
and Coastal Management Policy 202.1.1.)
Policy 901.4.5: By January 4, 1998, Monroe County shall adopt Land Development
Code which establish density criteria for OSDS based on site specific constraints and
prescribe the types of systems to be utilized based upon the results of the Sanitary
Wastewater Master Plan.
Policy 901.4.6: Upon adoption of the Sanitary Wastewater Master Plan by January 4,
1998, the minimal operational standards for package plants, collection systems,
pump stations, and disposal wells shall be those contained in the adopted Master
Plan.
Policy 901.4.7: As part of the Sanitary Wastewater Master Plan, an inventory of all
wastewater treatment plants and OSDS areas shall be completed which identifies:
1.the entity having operational responsibility;
2. current rated plant capacity;
3. existing treatment status (number and type of hookups);
4. all future committed capacity (number and type of hookups);
S. all facilities which fall below level of service standards identified in the
Master Plan;
6. costs associated with improving those facilities to meet minimum level of
service standards;
7. funding sources and construction schedules for those improvements; and
8. average and peak flow design capacity for sanitary sewer facilities.
Policy 901.4.8: Upon adoption of the Sanitary Wastewater Master Plan, the County
shall seek legislative action to amend the Florida Administrative Code Chapter 10D-
6 to require HRS to administer and enforce the adopted standard for wastewater
treatment.
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Policy 901.4.9: In the event Central Sewer Service becomes available (as defined
by Chapter 10D-6) to areas served by OSDS, owners of OSDS within such areas shall
have 365 days to connect to the central system.
Policy 901.4.10: In coordination with FKAA, DER, EPA, NOAA, or other appropriate
agencies, Monroe County shall prepare and distribute annual reports indicating the
status of the Sanitary Wastewater Master Plan.
Policy 901.5.2: By January 4, 1998, the existing and/or available results of the
comprehensive water quality monitoring program shall be analyzed and reported to
document specific problem areas which may be in violation of federal or state
standards or which may be defined through scientific study, as a threat to the
continued maintenance of high levels of water quality or to specified biotic
communities. Upon confirmation of any problem areas, priorities for the
construction of alternate wastewater facilities shall be reevaluated, within the
context of the Monroe County Sanitary Wastewater Master Plan, with those areas in
greatest need given highest priority.
Policy 901.5.3: Monroe County shall implement the findings of the Sanitary
Wastewater Master Plan; the County shall use the adopted Sanitary Wastewater
Master Plan as a guide for implementation of central sewer projects.
Policy 901.5.4: By January 4, 1997, Monroe County shall adopt Land Development
Code which ensure that sewage disposal facilities shall be designed and located in a
manner that in the event of power failure, untreated effluent will not be discharged
into any surface body of water, groundwater or any wetland.
Policy 901.5.5: By January 4, 1997, Monroe County, in cooperation with the
appropriate State permitting agencies, shall adopt Land Development Code which
ensure that sewage disposal facilities are sited such that any discharge point,
whether by shallow or deep well, is located as far as possible from any surface body
of water and any FKAA Aquifer Storage Recovery area while still adhering to other
setback requirement established by Chapter 10D-6, F.A.C.
Policy 901.5.6: By January 4, 1997, Monroe County shall adopt Land Development
Code which require that OSDS drainfields be located on the least environmentally
sensitive portion of a parcel proposed for development when more than one habitat
type is found within the parcel, the criteria for which shall be defined within the
adopted Land Development Code.
Policy 901.5.7: Pending the completion and implementation of the ADID or other
similar functional analysis, Monroe County shall prohibit the use of OSDS in
buttonwood, salt marsh or wetland area and require the provision of a buffer
between OSDS and wetlands. Following the completion of the ADID or other similar
revised functional analysis, but no later than January 4, 1999, Monroe County shall
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determine whether OSDS may be used in disturbed wetlands based on functional
assessment and shall adopt Land Development Code to further implement this
policy.
Policy 901.5.8: Monroe County shall ensure that wastewater treatment facilities
are designed and constructed in accordance with the adopted levels of service, so as
to limit the discharge or introduction of pollutants into nearshore waters.
Policy 901.5.9: By January 4, 1998, Monroe County, as part of the Sanitary
Wastewater Master Plan shall continually investigate the potential for
reuse/recycling of treated wastewater. The Master Plan shall set forth the
requirements for the types and locations of developments which shall be required to
utilize a water reuse system.
Policy 901.5.10: Monroe County, in conjunction with appropriate federal, state and
regional agencies, shall continue to minimize or eliminate the use of products which
contain phosphorous in the County.
Policy 901.5.11: By January 4, 1998, Monroe County, during the development of the
Sanitary Wastewater Master Plan shall consider and evaluate advanced wastewater
treatment as a first option for sewage treatment in the construction, expansion, or
replacement of central sewer systems including package treatment. Monroe County
shall require the consideration and evaluation of effluent reuse consistent with F.A.C.
Rule 17-610 as a first option for effluent disposal.
Policy 901.5.12: By January 4, 1998, all public and privately-owned upland areas
shall be inventoried and evaluated to determine the feasibility of these lands for
effluent reuse.
Policy 901.5.13: By January 4, 1997, Monroe County, in coordination with DER,
shall begin to evaluate the use of hazardous household products including
herbicides and pesticides to assess their impacts on sewer facilities and adjacent
natural resources, and shall seek, through educational programs, to eliminate the
use of any such products identified as creating adverse impacts.
Policy 901.5.14: Monroe County shall revise the Land Development Code to
incorporate the conclusions and recommendations of the EPA's water quality
protection program as those findings become available.
Policy 901.5.15: The Florida Department of Environmental Regulation and the
HRS shall continue their inspection and monitoring program for sewage treatment
plants, including package treatment plants. DER shall enforce current state
regulations and require the timely improvement or replacement of those systems
which do not comply with current regulations as specified in Rule 17-600 F.A.C.
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Policy 901.5.16: The following facility design and siting standards shall apply to
sewage treatment plants:
1. All new and expanding plants shall set the discharge point back from
surface water a minimum of one hundred feet. This shall apply to plants
utilizing either injection wells or drainfields.
2. All Class V injection wells (as defined by Florida Statutes and the Florida
Administrative Code) shall be drilled to a minimum open hole of ninety feet
in depth and cased and grouted to a minimum of sixty feet in depth.
3.All sewage plants except aerobic plants shall provide for wastewater reuse
whenever feasible and in compliance with Rule 17-610, F.A.C.
Policy 901.5.17: The minimum required setbacks for zoning districts, as specified
in the Land Development Code, may be waived to accommodate wastewater
treatment plant expansion where it can be demonstrated that:
1. the expansion is required to bring an existing plant up to current state and
county standards or is required to resolve a violation of either of these
standards; and
2.there is no other practical alternative such as construction of a new plant.
Policy 901.5.18: All existing development shall connect to public treatment plants
where available within one year of the date of plant start-up.
Policy 1401.4.15: Monroe County shall prepare a Sanitary Wastewater Master Plan
which shall be completed by January 4, 1998 and implemented beginning in Fiscal
Year 1999. The County shall coordinate with the FKAA, the Florida Departments of
Environmental Regulation (DER) and Health and Rehabilitative Services (HRS), and
the U.S. Environmental Protection Agency (EPA), at a minimum, concerning joint
preparation and funding of the Master Plan. Note: Monroe County recognizes its
obligations under the stipulated settlement agreement but practicality of timeframe
implementations may require modifications of agreement date premises.
Policy 1401.4.1: By January 4, 1998, Monroe County shall revise the
Comprehensive Plan Five-Year Schedule of Capital Improvements and the County
Capital Improvements Program to include funding for the improvements identified
in the Sanitary Wastewater/Stormwater Management Master Plan.
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D. Strategies:
• Some of the recommendations to overcome fiscal impacts suggested in the
Wastewater Master Plan are as follows:
o FKAA and the County should to pursue an equitable way to distribute the
costs of wastewater implementation that takes into account the
differential costs of varying development densities while recognizing that
near shore water quality improvements are a county-wide benefit.
o Pursue State and federal grants with FKAA to supplement project costs.
o Acquire necessary land to accommodate future facilities and expansion.
o Develop standards and hook-up requirements for hot spots in
coordination with DOH.
• Continue to monitor the Numeric Nutrient Criteria Rule. (See subtopic "Numeric
Nutrient Criteria"for details).
• Also see the recommendations related to Sanitary Sewer contained with Chapter
3: Element Assessment.
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Issue Category#2(h):Stormwater:
A. Background: Development and urbanization affect hydrologic cycles, natural
systems and drainage patterns. The natural biologic and geologic systems are
adapted to, and altered by, the climatic and hydrogeologic regimes of a locale. As
human activity disturbs this balance by removing vegetation, altering topography and
increasing imperviousness, the intensity and frequency of damaging storm water
runoff increases, as does the resulting erosion and flooding. Urbanization also alters
the chemical composition of runoff. As rainfall washes over buildings, lawns,
roadways, and parking lots, it carries away the detritus of human activity and absorbs
anthropogenic compounds from pesticides,fertilizers,metals and petrochemicals.
These consequences of human habitation and activity require that stormwater be
controlled and managed to mitigate the adverse effects on the natural environment
and to safeguard life and property.
Over the last 50 years, the County has witnessed rapid growth as development has
spread beyond the confines of Key West and Key Largo. Over this period, the
unincorporated sections of the County have been transformed from very isolated and
rural to increasingly urbanized.
Because of the combination of the proximity of the ocean, dense vegetation and
permeable soil, many citizens of the County have traditionally given little concern to
stormwater runoff. Most rainfall readily infiltrates the undifferentiated sands that
comprise the soil of the Florida Keys.
Historically, drainage works in the County primarily consisted of improvements
addressing low areas, mosquito ditches cut to drain native wetlands, and boat canals
used as primary drainage facilities with building sites draining directly into them by
sheet flow, minor ditches or through percolation. On a number of projects, the
County has also included the installation of stormwater seepage trenches as part of
many of the County Road resurfacing projects. Further, a number of injection wells
have been installed as part of drainage improvements within County Roads when
possible and funding allowed.
The dredging of navigable canals and borrow pits has also had an effect on the
hydrologic regime of the Florida Keys. Besides the obvious impact to the landscape,
such activities can have widespread off-site effects. Because canal cuts open new
interfaces between the ocean and groundwater, they can have dramatic
hydrogeologic consequences.
Ditches along U.S. 1 have served as primary drainage systems on several Keys,
transporting stormwater along the axis of the highway to the ocean. The highway
was originally constructed on an old railroad with little improvement other than
pavement installation. Key Largo, Islamorada and other urbanized segments of U.S. 1
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have limited storm drainage systems. As part of a major roadway projects, the FDOT
installs storm sewer and retention basins adjacent to U.S. 1 as required to meet
current attenuation and water quality requirements.
The overriding stormwater concern for residents of the County has always been the
low-lying topography with the threat of inundation by hurricane-driven storm surges.
In some areas, particularly in Key West and Marathon, significant localized flooding
occurs from longer duration storms which occur almost annually. Virtually the entire
landmass of the Florida Keys lies within the 100-year flood plain designated by FEMA
and is classified as an area of special flood hazard.
The Mainland: The mainland segment of the County has been largely ignored by
development interests because it consists solely of the vast system of marshes,
sloughs, tree islands and cypress forests known as the Everglades. This indifference
has not, however, protected this wilderness from the effects of human activity. Much
of mainland Monroe County was incorporated into the Everglades National Park
which was created in 1947. Also in 1947,the U.S.Army Corps of Engineers undertook
the C&SF Project. This extensive network of canals and control structures was
intended to meet the needs of flood protection, drainage and irrigation of farmland,
and water supply to the urban areas along the coast. Although none of the C&SF
improvements are within the County,the project modified the hydrology of the Shark
River Slough, Rocky Glades, Taylor Slough and Broad River which serve as
headwaters to the Everglades National Park.
Completed in the 1960s, the C&SF had unfortunate consequences for the Everglades,
including Everglades National Park. This management system altered the hydro
period of the Everglades, exacerbating droughts and extending inundations. The
C&SFP also altered the quantity of fresh water and transported an increased quantity
of nutrients and agrichemicals from the Everglades Agricultural Area through the
Everglades National Park and into Florida Bay.
Currently planned improvements to restore the Everglades are in progress as
authorized under CERP, one of the largest ecosystem restoration programs in
United States. CERP was authorized by the Water Resources Development Act of
2000. The goal of CERP is to restore the South Florida ecosystem, including the
Everglades, while providing for other water supply and flood protection needs of
South Florida.
The restoration focuses on several major problems affecting Florida Bay and the
Florida Keys. These issues include water quantity, flow, increased salinity, water
quality, fish and wildlife resource management, water supply and public access.
Examples of projects designed to improve the water resources of the County include:
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• Water Conservation Areas: Protect and improve the natural resources of the
Water Conservation Areas (WCA) as an integral part of the Everglades system
while maintaining the multiple functions of the WCA.
• Everglades National Park: Provide adequate timing, distribution and flow of
rainfall-quality water (phosphorus concentrations equal to or less than 0.03
milligrams per liter (mg/1)) to the Everglades National Park (ENP) which will
maintain and perpetuate natural southern Everglades habitats and functional
ecosystems.
• C-111 Basin: Manage the C-111 Basin to protect environmental resources and
maintain existing public uses, and to provide more natural hydroperiod and flow
conditions and adequate water quality to the basin's wetlands, coastal estuaries
and the ENP.
• Florida Bay: Protect and improve natural surface water quality, quantity,
distribution and timing of water flowing into Florida Bay through the ENP, the C-
111 and the Florida Keys so as to maintain the ecosystem integrity and habitat
diversity of the receiving waters.
B. Analysis: In the past, the only controls on stormwater imposed by the
County were those involving flood protection and floodplain encroachment in
Section 122 of the MCLDC. Subsequently, the MCLDC has been revised, based on
recommendations provided in the County's Stormwater Management Master Plan
(SMMP), 2001, to not only provide stormwater controls for flood protection and
floodplain encroachment, but also to include water quality controls in Section 114-3
of the MCLDC. This new MCLDC also includes water quality controls for existing and
proposed residential development and addresses retrofitting of existing facilities
and redevelopment activities. This meets the intent of Section 114-3(a) of the
MCLDC,to protect the vital water resources of the County.
In conjunction with Section 114-3 of the MCLDC,the County has prepared a Manual of
Stormwater Management Practices which provides information on acceptable forms
of BMPs. This document was prepared with the assistance of the SFRPC and the
SFWMD and includes BMPs consisting of rate control structures, catch basins with
skimmers and baffles,and wet and dry detention/retention facilities.
The County's Work Program (Chapter28-20 F.A.C.) requires, among other things, the
implementation of several stormwater improvement projects. No Work Program
task has been ignored or not acted upon and all tasks may be considered either
complete or in progress. While the number of remaining tasks is limited,these tasks
are costly and time consuming to complete. Specific stormwater tasks and their
associated timelines are as follows:
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• By July 1, 2011, Monroe County shall evaluate and allocate funding for
stormwater implementation. Monroe County shall identify any funding in the
annual update to the Capital Improvements Element of the Plan;
• By July 1, 2011, Monroe County shall apply for stormwater grants from the
SFWMD; and
• By July 1, 2011, Monroe County shall complete Card Sound Road stormwater
improvements.
Prior to the 1990's, given the location and configuration of the Keys and the unlimited
outfall capacity of the surrounding water bodies, relatively little consideration had
been given to stormwater runoff. There is concern that this history of unregulated
stormwater runoff contributes to a portion of the nearshore water nutrient and
sediment loading. Subsequent regulatory developments have increased focus on
stormwater management practices related to water quality and quantity. Designation
of the Keys as an Area of Critical State Concern (ACSC) (Section 380.0552 F.S.) in 1974
and designation of the surrounding waters as Outstanding Florida Waters (OFW)
(Chapter 62-3, F.A.C.) in 1985 required that a county-wide comprehensive water
quality monitoring program be established. In 2001, the County Stormwater
Management Master Plan was created, and a portion of its recommendations have
been implemented,though not yet complete.
C. Policy Framework:
Policy 101.1.1: Monroe County shall adopt level of service (LOS) standards for the
following public facility types required by Chapter 9J-5, F.A.C: roads, sanitary sewer,
solid waste, drainage, potable water, parks and recreation, and paratransit. The LOS
standards are established in the following sections of the Comprehensive Plan:
S. The LOS for drainage is established in Drainage Policy 1001.1.1;
Objective 101.9: Monroe County shall provide for drainage and stormwater
management so as to protect real and personal property and to protect and improve
water quality.
Policy 101.9.1: Upon adoption of the Comprehensive Plan, Monroe County shall
adopt and implement the level of service standards for stormwater management
established in Drainage Policy 1001.1.1. These level of service standards ensure that
at the time a development permit is issued, adequate stormwater management
facilities are available to support the development concurrent with the impacts of
such development. (See Drainage Objective 1001.1 and related policies.)
Policy 101.9.2: By January 4, 1997, Monroe County shall adopt a Stormwater
Management Ordinance. This ordinance shall require that all improvements for
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replacement, expansion or increase in capacity of drainage facilities conform with
the adopted level of service standards for new development. (See Drainage
Objective 1001.1 and related policies.)
Policy 101.9.3: Monroe County shall maintain a five-year schedule of capital
improvement needs for drainage facilities as part of the Capital Improvement
Program. This schedule shall be updated annually. (See Drainage Objective 1001.2
and related policies.)
Policy 101.9.4: The County shall use the adopted Stormwater Management Master
Plan as a guide for stormwater management to protect personal property and to
protect and improve water quality.
Policy 102.5.1: Monroe County shall develop and implement permitting, inspection,
and enforcement procedures designed to reduce pollutant discharges into ground
and surface waters from:
S. stormwater runoff (by January 4, 1997) (See Drainage Goal 1001 and
related objectives and policies).
Objective 202.9: By January 4, 1997, Monroe County shall develop and implement
permitting, inspection, and enforcement procedures designed to reduce pollutant
discharges into ground and surface waters from stormwater runoff. (See Drainage
Goal 1001 and related objectives and policies.)
Policy 202.10.3: By January 4, 1997, Monroe County shall adopt a Stormwater
Management Ordinance which adopts the level of service standards for the quality
and quantity of stormwater discharges in this Comprehensive Plan (See Drainage
Policy 1101.1.1). Best management practices (BMPs) developed pursuant to Policy
202.10.2 above for temporary and permanent erosion and sedimentation control
shall be incorporated by reference into this ordinance and shall be recommended
for use to meet water quality criteria of the ordinance. At a minimum, BMPs shall
include minimizing alteration of the natural landscape due to paving and elevational
changes and the use of retention basins, detention basins, vegetated swales, and/or
exfiltration trenches on site, as appropriate.
Policy 202.10.4: Monroe County shall require use of the adopted best management
practices for erosion and sedimentation control, where appropriate, as stipulations
for land development orders.
Policy 202.10.5: Monroe County shall identify erosion and sedimentation problem
areas within existing subdivisions and disturbed or scarified lands. The Stormwater
Management Master Plan will address drainage improvements required for these
areas to mitigate erosion and sedimentation problems (See Drainage Objective
1001.3 and related policies).
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Policy 212.2.4: Stormwater management criteria applicable to the shoreline
setbacks shall encourage Best Management Practices (BMPs) which utilize natural
berms and vegetation to control runoff from waterfront property. Berms shall not
be installed where shoreline vegetation is present. Where berms are used along
artificial waterways, they shall be raised so that there is a gradual slope away from
the canal edge. In any case, all stormwater management criteria shall conform to
adopted level of service standards for water quality and quantity (See Drainage
Element Objective 1001.1 and related policies).
Policy 215.1.1: Monroe County shall adopt level of service standards (LOS) for the
following public facility types required by Chapter 9J-5, F.A.C: roads, sanitary sewer,
solid waste, drainage, potable water, parks and recreation, and mass transit. The
LOS standards are established in the following sections of the Comprehensive Plan:
S. The LOS for drainage is established in Drainage Policy 1001.1.1;
GOAL 1001: Monroe County shall provide a stormwater management system which
protects real and personal properties, and which promotes and protects ground and
nearshore water quality.
Objective 1001.1: Monroe County shall ensure that at the time a development
permit is issued, adequate stormwater management facilities are available to
support the development at the adopted level of service standards concurrent with
the impacts of such development.
Policy 1001.1.1: Water Quality Level of Service Standards - Minimum Water
Quality:
1.All projects shall be designed so that the discharges will meet Florida State
Water Quality Standards as set forth in Chapters 17-25 and 17-302, F.A.C,
incorporated herein by reference. In addition, all projects shall include an
additional 50 percent of the water quality treatment specified below, which
shall be calculated by multiplying the volumes obtained in Section (a) by a
factor of 1.5 , Retention/Detention Criteria (SFWMD Water Quality Criteria
3.2.2.2):
a) Retention and/or detention in the overall system, including swales, lakes,
canals, greenways, etc., shall be provided for one of the three following
criteria or equivalent combinations thereof:
(1) Wet detention volume shall be provided for the first inch of runoff from
the developed project, or the total runoff of 2.5 inches times the percentage
of imperviousness, whichever is greater.
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(2) Dry detention volume shall be provided equal to 75 percent of the above
amount computed for wet detention.
(3) Retention volume shall be provided equal to 50 percent of the above
amounts computed for wet detention.
b) Infill residential development within improved residential areas or
subdivisions existing prior to the adoption of this comprehensive plan must
ensure that its post-development stormwater run-off will not contribute
pollutants which will cause the runoff from the entire improved area or
subdivision to degrade receiving water bodies and their water quality as
stated above.
c) New Development and Redevelopment projects which are exempt from
the South Florida Water Management District permitting process shall also
meet the requirements of Chapter 40-4 and 40E-40, F.A.C.
Policy 1001.1.2: By January 4, 1997, Monroe County shall adopt Land Development
Code which provide a Concurrency Management System (See Capital Improvements
Policy 1401.4.5). The Concurrency Management System shall ensure that no permits
will be issued for new development unless adequate stormwater management
facilities needed to support the development at the adopted level of service
standards are available concurrent with the impacts of development.
Policy 1001.1.3: By January 4, 1997, Monroe County shall adopt a Stormwater
Management Ordinance which establishes level of service standards for the quality
and quantity of stormwater discharges for single family residential development
and redevelopment which utilizes Best Management Practices and Design
Guidelines in their implementation (See Natural Groundwater Aquifer Recharge
Policy 1101.2.4).
Policy 1001.1.4: By January 4, 1997, in conjunction with the adoption of the
Stormwater Management Ordinance, all improvements for replacement, expansion
or increase in capacity of drainage facilities shall conform to the adopted level of
service criteria for new development.
Policy 1001.1.5: By January 4, 1997, Monroe County shall adopt Land Development
Code which ensure county review of all development permits for compliance with
adopted stormwater management design criteria prior to approval by the issuing
agency.
Policy 1001.1.6: By January 4, 1998, in conjunction with the development of the
Stormwater Management Master Plan, Monroe County shall complete an inventory
and analysis of existing public and private drainage facilities within the County. (See
Objective 1001.3 and related policies) Note: Monroe County recognizes its
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obligations under the stipulated settlement agreement but practicality of timeframe
implementations may require modifications of agreement date premises.
Policy 1001.1.7: By January 4, 1997, Monroe County shall work with the SFWMD
through the existing interlocal agreement to adopt and implement appropriate
stormwater quality evaluation and estimation criteria and techniques for
incorporation into the County's Stormwater Management Ordinance and Land
Development Code.
Objective 1001.2: The County shall maintain a five-year schedule of capital
improvement needs for drainage facilities as part of the County Capital
Improvements Program. This program shall be updated annually consistent with
Capital Improvements Policy 1401.1.2 and in conjunction with the County's annual
budget process to ensure economic feasibility.
Policy 1001.2.1: Proposed stormwater capital improvements projects shall be
evaluated and ranked according to the following priority level guidelines, with
special attention to the position of the project in the Monroe County Seven Year
Road Plan:
Level One - Whether the project is needed to protect public health and
safety, to fulfill the County's legal commitment to provide facilities and
services, to protect sensitive environmental areas from documented or
anticipated adverse impacts, or to preserve or achieve full use of existing
facilities.
Level Two - Whether the project increases efficiency of use of existing
facilities, prevents or reduces future improvement costs, provides service to
developed areas lacking full service, or promotes infill development.
Level Three - Whether the project represents a logical extension of facilities
and services within a designated service area.
Policy 1001.2.2: Projects needed to correct existing deficiencies shall be given
priority in the formulation and implementation of the annual work program for the
responsible County department. Specific priority will be given to those existing
drainage problems which are determined to have the greatest adverse effect on
groundwater and nearshore waters or areas designated as Outstanding Florida
Waters.
Objective 1001.3: By January 4, 1998, Monroe County, in coordination with
SFWMD and DER, shall complete a comprehensive Stormwater Management Master
Plan which ensures that stormwater management facilities are developed to attain
adopted levels of service for all existing and proposed land uses.
Note: Monroe County recognizes its obligations under the stipulated settlement
agreement but practicality of timeframe implementations may require
modifications of agreement date premises.
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Policy 1001.3.1: Monroe County shall implement the findings of the adopted
Stormwater Management Master Plan and use the document as a guide for
stormwater management to protect personal property and to protect and improve
water quality.
Policy 1001.3.2: By the effective date of this Plan, Monroe County shall enter into
an agreement with EPA, DER, SFWMD and NOAA regarding the scope of studies
required to document pollutant loads from stormwater runoff from the Florida Keys
into surrounding waters. These studies shall be executed according to the terms of
the agreement, in coordination with the Water Quality Protection Program for the
Florida Keys National Marine Sanctuary. Upon execution of this agreement, the
scope of the Stormwater Management Master Plan shall be adjusted accordingly.
(See Conservation and Coastal Management Policy 202.1.1.)
Policy 1001.3.3: By January 4, 1998, the County shall evaluate the performance of
stormwater management systems which are to be installed in accordance with the
Stormwater Management Ordinance. This performance evaluation will be based
upon physical sampling and analysis of the discharge water of these structures.
Objective 1001.4: By January 4, 1998, Monroe County shall coordinate with the
appropriate regional agencies and adjacent local governments to address regional
drainage issues.
Policy 1001.4.1: Monroe County shall, as necessary, enter into interlocal
agreements with Dade, Broward and Collier Counties, and with agencies having
regional oversight over drainage issues, such as SFWMD and the ACOE. These
agreements shall be designed to:
1. protect the functions of natural drainage features that impact the quality of
the waters surrounding the Florida Keys; and
2. coordinate the extension or increase in capacity of any interjurisdictional
drainage facilities which are necessary to meet the future needs of Monroe
County.
Policy 1001.4.2: Prior to any revision of drainage policies and ordinances, Monroe
County shall meet with the SFWMD and the SFRPC to ensure that the local
regulatory framework is consistent with the planning objectives and regulations of
the region.
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D. Strategies:
• The focus of the SMMP was on public facilities, and did not address the needs of
many of the private stormwater management systems throughout the County. To
this end,in an effort to provide increased control of water quantity, enhance water
quality, and effectively manage stormwater, the feasibility of creating a county-
wide Stormwater Utility entity, pursuant to Chapter 403, F.S., should be examined.
Under the Utility, developed parcels of property could be assessed a fair and
equitable user fee based upon that property's amount of impervious surface or
other criteria. This user fee could then be used by the utility to correct existing
deficiencies and provide for future facilities in the stormwater management
system. The utility fee could also provide ongoing revenues for operation and
maintenance of the public system.
• Section 114-3 of the MCLDC provides stormwater management criteria compliant
with existing federal and State criteria, and Section 114-4 provides for revisions to
114-3 to maintain compliance. Impending State and federal nutrient rules for
surface water and forecast climate change-driven changes to sea level and storm
patterns may require revision to the LDC..
• Policy 1001.1.6 directs the County to complete an inventory and analysis of
existing public and private drainage facilities in the County. At the present time,
only project specific surface water management systems exist in the County that
are capable of servicing existing land use or mitigating associated impacts. A
facility-specific land use inventory has not been completed to ascertain the
drainage system needed to serve a combination of residential, commercial,
industrial, extractive, institutional and agricultural land uses as well as public
facilities, conservation/preservation areas and vacant lands. The Monroe County
Department of Public Works should inventory and evaluate their effectiveness and
identify flooding issues to resolve common issues.
• The County should periodically sample the discharge from stormwater
management systems to determine compliance with the water quality
requirements of the MCLDC and modify BMP recommendations as appropriate to
improve the performance of future systems.
• The County should continue to monitor the Numeric Nutrient Criteria Rule. (See
subto is Numeric Nutrient Criteria for details).
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V. Climate Change/Hazard Mitigation
Issue Statement: Monroe County should support and promote "green"
initiatives; address climate change; and develop and implement hazard
mitigation/adaptation best practices.
A. Background: Within the U.S., fossil fuel combustion accounts for the majority
of carbon dioxide (CO2) emissions. Fossil fuels are generally combusted for the
purpose of producing energy for useful heat and work (U.S. EPA Inventory of U.S.
Greenhouse Gas Emissions and Sinks: 1990-2008). The five major fuel consuming
sectors contributing to CO2 emissions from fossil fuel combustion are electricity
generation, transportation, industrial, residential, and commercial. Changes in land
use and forestry practices can also emit CO2 (e.g.,through conversion of forest land to
agricultural or urban use) or can act as a sink for CO2 (e.g., through net additions to
forest biomass). The term "sink" used in this context is any process, activity or
mechanism which removes greenhouse gases from the atmosphere. Transportation
and electricity generation are typically the largest contributors of CO2 emissions from
fossil fuel combustion.
Global warming is the gradual rise of the Earth's surface temperature. The Earth's
average temperature has increased by about 1°F (0.5°C) over the past century. An
increase in global warming has occurred in the distant past as the result of natural
influences, but today, the term is most often used to refer to the warming as a result
of increased emissions of GHGs. There are six GHGs regulated under the Kyoto
Protocol. These GHGs are: carbon dioxide (CO2), methane (CH4), nitrous oxide
(N20), hydrofluorocarbons (HFCs), perfluorocarbons (PFCs), and sulfur
hexafluoride (SF6). Although the direct GHGs CO2, CH4, and N20 occur naturally in
the atmosphere, human activities have changed their atmospheric concentrations.
Much of the sunlight that reaches the Earth's surface is reflected upward again as
infrared radiation. The heat caused by infrared radiation is absorbed by gases such
as water vapor, carbon dioxide, ozone and methane, thus retaining some of that heat
in the Earth's atmosphere. This action regulates the Earth's climate. The increased
accumulation of GHGs results in more infrared radiation trapped and held in the
Earth's atmosphere. It is this warming trend that causes other climate change
impacts.
B. Analysis: Anthropogenic (human induced) activity is now widely accepted
by the overwhelming majority of the world's scientists as the major cause of recent
and predicted future global climate change (Karl et al., 2009; IARU, 2009). Climate
change is not only driven by the accumulation in the atmosphere of GHGs from the
burning of fossil fuels, but also deforestation, land use, and agricultural practices
(Heimlich et al., 2009). These influences on GHG emissions result in changes to
regional climate characteristics, including atmospheric and ocean temperatures,
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humidity, precipitation, wind, and severe weather events. The changes are
occurring at different rates and levels across the world.
Historically, societies and ecosystems have responded to climate change by
adjusting and adapting to the natural variability of climate conditions, but the rate
that climate change has been occurring in the last century has begun outpacing the
conditions of the past. Our ability to mitigate16 GHG emissions will affect the
magnitude of the climate change impacts to which we will need to adapt.17
"Vulnerability" to climate change refers to the exposure, sensitivity, and adaptive
capacity of systems to climate change (Intergovernmental Panel on Climate
Change).18 Mitigation of GHG emissions and adaptation to climate change are
inextricably linked, and both are required to reduce the impacts we have been, and
will be, seeing.19 Resilience to climate change is the capability to anticipate, prepare
for, respond to, and recover from significant multi-hazard threats with minimum
damage to social well-being, the economy and the environment (Council on
Environmental Quality "CEQ" 2010). It is this final response of"resilience" that the
County seeks to achieve with this Energy Conservation and Climate Element.
The County is on the front lines of climate change impacts such as sea level rise and
increased hurricane intensity. Recognizing the need to simultaneously mitigate GHGs
attributable to energy use and prepare for the gradual but accelerating impacts of
climate change,the County has already proactively taken several actions.
The County has adopted a GHG target for county operations (Resolution 067-2010),
including a reduction of countywide GHGs of 20 percent by 2020 as measured from a
2005 baseline inventory. The County has adopted green building standards for
County Facilities with Resolution 147-2010; building upon the energy requirements
in the Florida Building Code by incorporating the Florida Green Building Coalition's
green commercial building standard for county buildings, as the standard to be used
for construction of all public buildings. Finally, the County established the "Employee
Green Team" in December 2009 to develop a government operations climate action
plan.
16 Mitigation is an intervention to reduce the causes of changes in climate, such as through reducing
emissions of greenhouse gases in the atmosphere. The White House Council on Environmental
Quality,"Progress Report of the Interagency Climate Change Adaptation Task Force: Recommended
Actions in Support of a National Climate Change Adaptation Strategy"(October 5,2010).
17 Adaptation is the adjustment in natural or human systems to a new or changing environment that
exploits beneficial opportunities or moderates negative effects. Id.
18 Differences in geological, oceanographic and biological processes can also lead to substantially
different impacts on a single coastal system at different locations. Some global patterns and obvious
areas of vulnerability are clear, however, estuaries, coral reefs, and ice-dominated coasts appear
most vulnerable to either climate change or associated sea-level rise and changes. Low-lying coastal
wetlands, small islands, sand and gravel beaches and soft rock cliffs may also experience significant
changes (IPCC,2001).
191d.
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Although not traditionally considered a strategy to address energy conservation and
climate change, State and federal guidance and regulations pertaining to mitigation
planning already require the identification of mitigation goals that are consistent with
other goals, mission statements and vision statements (a Local Mitigation Strategy
"LMS"). The previous Comprehensive Plan included Goal 217: "Monroe County shall
develop and implement a program of hazard mitigation and post-disaster
redevelopment to increase public safety and reduce damages and public
expenditures." The LMS Working Group first developed a set of goals as part of the
1999 LMS. These goals were reviewed and confirmed for the LMS revision in 2005,
with one minor addition. The goals were discussed and reconfirmed for the 2010
Update. Monroe County Local Mitigation Strategy Goals include20:
• Preservation of sustainability of life, health, safety and welfare;
• Preservation of infrastructure, including power, water, sewer and
communications;
• Maintenance and protection of roads and bridges, including traffic signals and
street signs;
• Protection of critical facilities,including public schools and public buildings;
• Preservation of property and assets;
• Preservation of economy during and after disaster, including business viability;
and
• Preservation and protection of the environment, including natural and historic
resources.
Much of the LMS can provide baseline information in terms of what the County
vulnerabilities are related to storm events, and additionally, projected impacts from
climate change.
The Green Initiative Task Force was created on June 18, 2008 (Resolution 177-2008)
by the Board of County Commissioners (`BOCC".) Originally called the Green Building
Code Task Force, the name and mission, was officially changed with the adoption of
Resolution 121-2009 on April 15, 2009. Membership of the task force consisted of
two appointments made by each Commissioner (the BOCC had the discretion to
nominate one member from their own district and one member from the County at
large), and one member from each of the municipalities, utilities and the Navy
(Resolution 024-2010). The task force was sunsetted on October 1, 2010 (Resolution
345-2008). The task force was coordinated by the Extension Services under the office
of the County Administrator (Resolution 446-2009). The scope of the task force was
to provide recommendations to the BOCC on environmentally sound practices and
techniques to protect the environment as well as address climate change mitigation
and adaptation needs. The task force also provided recommendations on green
20 Monroe County and Incorporated Municipalities Key West, Marathon, Key Colony Beach, Layton,
and Islamorada Village of Islands,"Local Mitigation Strategy",2010 Update.
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standards for implementation to improve quality of life and create more efficiency in
County government.
The Green Initiatives Task Force completed a Sustainable Vision Statement in
September 2010 with several key recommendations to address energy conservation
and climate change. In the development of Sustainable Vision Statement, the Green
Initiatives Task Force reviewed much of the data shaping energy and climate policy
and management approaches in Florida. This data included recent analysis by the
SFWMD, the U.S. Army Corps of Engineers, other local government energy/climate
change initiatives and State and federal laws. That best available data serves as the
basis for this Energy Conservation and Climate Element.
In relation to the Plan, the task force made the following recommendation: "The
Monroe County Comprehensive Plan should include strategies to address the impacts
of climate change. Adaptive management principles should be used to continually
review and revise climate mitigation and adaptation policies, objectives, and Land
Development Regulations." Revisions to the Plan may include:
• Create a Climate Change Element or Sub-Element within the Plan which
can be a model to other local government efforts;
• Address greenhouse gas reduction and energy conservation strategies that
promote compact, bicycle and pedestrian-friendly development; increase
public transportation; reduce reliance on automobiles, the construction of
energy efficient buildings; and address the potential effects of rising sea
levels,tropical storms,storm surge,and other climate change issues; and
• Consider climate change impacts as a factor in determining whether or not
to permit additional intensity or density in land use plan changes."
An additional recommendation was also made:
Monroe County should continue to support the livable communities
concept which promotes functional, walk-able mixed use development
designs and projects by providing flexibility in development review for
these projects, revising the zoning and land development codes to allow
and encourage these projects, establishing incentives for this type of
development, and adopting specific goals in the Comprehensive Plan to
support and establish sustainable development patterns.
Because the Sustainable Vision Statement was accepted by the BOCC on September 15,
2010, those recommendations also provide a basis for the development of policies in
this EAR and the new Plan.
The Southeast Florida Regional Climate Change Compact (the "Compact") is a joint
commitment of Monroe, Broward, Miami-Dade and Palm Beach Counties to partner in
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mitigating the causes and adapting to the consequences of climate change. The
Compact was formalized in 2009 following the Southeast Florida Climate Leadership
Summit, when elected officials came together to discuss challenges and strategies for
responding to the impacts of climate change. The Compact outlines a collaborative
effort to participate in a Regional Climate Team toward the development of a
Southeast Florida Regional Climate Change Action Plan. Specifically, the Compact
includes seven commitments on the part of the participating counties:
• Each county shall work in close collaboration to develop a joint policy position
urging the United States Congress to pass legislation that recognizes the unique
vulnerabilities of Southeast Florida to the impacts of climate change and to further
a joint policy position that includes specific recommendations regarding the
allocation of federal climate change funding based on vulnerability to climate
change impacts.
• Each county shall work in close collaboration with the other counties to develop
additional legislative policy statements relating to global climate change and
future legislation to be considered by Congress for transmittal to the local
delegation members.
• Each county shall work in close collaboration to develop joint position statements
on proposed State legislation and energy/climate policies.
• Each county shall work to develop joint position statements for future State
legislation.
• Each county shall commit appropriate staff resources and expertise,within budget
constraints, to participate in a Regional Climate Team with other counties toward
the development of a Southeast Florida Regional Climate Change Action Plan.
• Each county shall work to develop a Southeast Florida Regional Climate Change
Action Plan. The Action Plan could, at a minimum, include the following
components:
- A baseline of greenhouse gas emissions for Southeast Florida;
- Strategies for coordinated emission reductions throughout the built
environment to include the use of energy efficiency, energy conservation, and
the use of demand-side renewable energy resources;
- Strategies for coordinated emission reductions from the transportation sector
to include increased reliance on public transit, emerging vehicle technologies,
and advanced biofuels;
- Strategies for coordinated emission reductions resulting from changes in local
and regional land use;
- Strategies for the coordinated regional preparation for and adaptation to a
rapidly changing global environment based upon regional mapping of
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projected sea-level rise and any resulting amplification of localized impacts of
tropical cyclone events. Such strategies shall incorporate climate preparation
concerns for the regional economy, regional infrastructure and the built
environment, social and cultural needs, and natural systems within the four
counties party to this compact; and
Each county shall commit to participating with other counties party to this
compact in hosting the Second Southeast Florida Regional Climate Change
Summit in October 2010.
There are also several work groups and sub-groups compiling information to
complete work products including a Greenhouse Gas Work Group,Vulnerability Work
Group, Sea Level Rise Work Group. Finally, the Regional Climate Change Action Plan
is being developed with a strategy of focusing on priority planning areas, narrowing
that focus through vulnerability and risk analysis and integrating it with the concepts
of mitigation and adaptation. The Focal Areas of the Plan include: Land and Natural
Systems, Transportation and the Built Environment. A Draft document is anticipated
for completion by December 2011.
In 2010, the County, along with the City of Marathon, City of Key West and
Islamorada, Village of Islands, received a State grant from the Florida Energy and
Climate Commission. The collective grant application known as the "Keys Energy
Conservation Initiative" identified different projects for use of the grant funds. The
County's projects included: an Energy Efficiency and Conservation Strategy for
County Operations and Facilities, energy retrofits at four buildings, and the purchase
of five hybrid vehicles for its fleet. Across all jurisdictions, the Grant includes funds
for a low-income solar hot water heating installation program and a public awareness
and outreach strategy on energy conservation and climate mitigation strategies. The
Grant activities will be concluded by 2012.
In January 2011, the BOCC adopted Resolution No. 002 - 2011 forming the Climate
Change Advisory Committee. The purpose of the Climate Change Advisory Committee
is to make recommendations to the BOCC regarding appropriate mitigation and
adaptation policies needed to address climate change issues and to provide input to
staff regarding implementation of those components of a Florida Energy & Climate
Commission Grant received by the County and multiple partners. The Grant includes
funds for community input and intergovernmental coordination on energy and
climate issues. The Committee will also provide input on climate action plans and
other climate related draft reports as needed.
HB 7207 amending Chapter 163, F.S. also included a new concept in State law known
as an "Adaptation action area" or "adaptation area"which means a designation in the
coastal management element of a local government's comprehensive plan which
identifies one or more areas that experience coastal flooding due to extreme high
tides and storm surge, and that are vulnerable to the related impacts of rising sea
levels for the purpose of prioritizing funding for infrastructure needs and adaptation
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planning." Section 163.3164(1) F.S. The law also provides that at the local
government's option, they can develop an adaptation action area designation for
"those low-lying coastal zones that are experiencing coastal flooding due to extreme
high tides and storm surge and are vulnerable to the impacts of rising sea level:. Local
governments that adopt an adaptation action area may consider policies to improve
resilience to coastal flooding resulting from high-tide events,storm surge, flash floods,
Stormwater runoff, and related impacts of sea level rise. Criteria for the adaptation
action area may include, but need not be limited to, areas for which the land
elevations are below, at, or near mean higher high water, which have an hydrologic
connection to coastal waters, or which are designated as evacuation zones for storm
surge, Section 163.3177(6)(g)10, F.S.
Trends in CO2 emissions from fossil fuel combustion are influenced by many long-
term and short-term factors.Year in and year out, the overall demand for fossil fuels
generally shifts in response to changes in general economic conditions, energy
prices, weather, and the availability of non-fossil alternatives. Longer-term changes
in energy consumption patterns, however, tend to be more a function of aggregate
societal trends that affect the scale of consumption (e.g., population, number of cars,
size of houses, and number of houses), the efficiency with which energy is used in
equipment (e.g., cars, power plants, steel mills, and light bulbs), and social planning
and consumer behavior (e.g., walking, bicycling, or telecommuting to work instead
of driving) (U.S. EPA Inventory of U.S. Greenhouse Gas Emissions and Sinks: 1990-
2008). Direct GHG emissions are emissions from sources that are owned or
controlled by the reporting entity such as energy use for the electricity generation
by utilities. Indirect GHG emissions are emissions that are a consequence of the
activities of the reporting entity, but occur at sources owned or controlled by
another entity. The residential and commercial end-use sectors are reliant on
electricity consumption for lighting, heating, air conditioning, and operating
appliances and as such are indirect emissions sources. Direct emissions, used in
industrial, commercial and residential sectors, represent the greatest share of U.S.
GHG emissions.
Energy use from the transportation sector is approximately 32 percent of CO2
emissions, 24 percent of CH4 emissions, and 65 percent of N20 emissions from fossil
fuel combustion, respectively. Among domestic transportation sources, light duty
vehicles (including passenger cars and light-duty trucks) represents 62 percent of
CO2 emissions, medium-duty and heavy-duty trucks 22 percent, commercial aircraft
seven percent, and other sources nine percent. From 1990 to 2008, transportation
GHG emissions rose due to increased demand for travel and the stagnation of fuel
efficiency across the U.S.vehicle fleet.
Over the 1990s through early this decade, growth in vehicle travel substantially
outweighed improvements in vehicle fuel economy; however, the rate of Vehicle
Miles Traveled growth slowed considerably starting in 2005 (and declined rapidly
in 2008) while average vehicle fuel economy increased. The number of vehicle
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miles traveled by light-duty motor vehicles (passenger cars and light-duty trucks)
increased 37 percent from 1990 to 2008, as a result of a confluence of factors
including population growth, economic growth, urban sprawl, and low fuel prices
over much of this period. A similar set of social and economic trends has led to a
significant increase in air travel and freight transportation. But, with EPA and the
National Highway Traffic Safety Administration (NHTSA) taking regulatory steps
toward mandating reductions in GHG emissions, and fuel use from cars and light
trucks, coupled with future regulatory steps related to fuel economy standards,
transportation related emissions could see future decreases.
The Intergovernmental Panel on Climate Change 2006 Guidelines for National
Greenhouse Gas Inventories (IPCC 2006) recommends consideration of the effects on
changes within, and conversions between, certain land-use types such as
undeveloped or forest land to development. The impact of considering these
changes is significant. Land use, land-use change, and forestry activities in 2008
resulted in a net carbon sequestration offset of approximately 13.5 percent of total
U.S. CO2 emissions.
Alternative development scenarios demonstrate that location, density, proximity,
connectivity, diversity of land uses and other concepts can be important in reducing
GHG emissions. The overall composition of development patterns, housing and
buildings types such as single-family, multi-unit and multi-story also have an
influence over energy use. Transit Oriented Development and Transit Ready
Development and transit served neighborhoods are all strategies that have been
used in other communities to reduce vehicles miles traveled. When considering
GHG emissions from land use, a land-use or management trend factor estimates the
rate at which land-use or management changes are occurring within the geographic
area during a specific timeframe. The land-use trend factor is then applied to the
baseline to reflect the changing land-use or management practices in an area.
Energy use in homes and businesses is typically a large sector of GHG emissions.
The U.S. Energy Information Administration (EIA) indicates total energy use from
these sectors at 7 percent of electricity sales.21 In homes, several factors influence
energy use: the physical characteristics of the housing units, the appliances utilized
including space heating and cooling equipment, demographic characteristics of the
household,the types of fuels used, and other information that relates to energy use.
According to the EIA, commercial buildings include all buildings in which at least
half of the floor space is used for a purpose that is not residential, industrial, or
agricultural; therefore, they include building types that might not traditionally be
considered "commercial," such as schools, correctional institutions, and buildings
used for religious worship. This includes retail and wholesale stores, hotels and
motels, restaurants, and hospitals. Excluded from the sector are the goods-
21 Electric Power Monthly,Table 5.1,April 22,2009.
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producing industries: manufacturing, agriculture, mining, forestry and fisheries, and
construction. Analysis of the structures, activities, and equipment associated with
different types of buildings is the clearest way to evaluate commercial sector energy
use.
Generally, a large portion of GHG emissions is related to energy use in resource
acquisition, manufacturing, transportation, and end-of-life life-cycle stages. The
total energy consumed related to waste management activities is a result of direct
fuel and electricity consumption associated with raw material acquisition and
manufacturing, fuel consumption for transportation, and embedded energy. Not all
GHG emissions are related to energy, however, and the effects of GHG are not
directly translatable to energy impacts. Alternative materials management
practices, source reduction, recycling, combustion, composting, and landfilling
strategies all can be used to reduce GHGs. The EPA Office of Solid Waste and
Response found that 42 percent of U.S. 2006 GHG emissions were associated with
the manufacturing, use and disposal of materials and products. As a result, changing
materials management patterns is an important strategy to help reduce or avoid
GHG emissions. Reducing the amount of materials used to make products,
extending product life spans and maximizing recycling rates are examples of
possible materials management strategies that can significantly reduce GHG
emissions.
Source reduction, or waste prevention, refers to practices that reduce the amount of
materials entering the waste stream, including changes in the design, manufacture,
purchase or use of materials. When a material is source reduced, GHG emissions
associated with producing the material and/or manufacturing the product and
managing the post-consumer waste are avoided. Consequently, source reduction
provides GHG emission benefits by: (1) avoiding the "upstream" GHGs emitted in the
raw material acquisition, manufacture and transport of the source-reduced
material; (2) increasing the amount of carbon stored in forests (when wood and
paper products are source reduced); and (3) avoiding the downstream GHG
emissions from waste management.
EPA defines recycling as "minimizing waste generation by recovering and
reprocessing usable products that might otherwise become waste (i.e., recycling of
aluminum cans, paper and bottles, etc.)" (EPA, 2008). In evaluating the relative GHG
reduction benefits of recycling compared to an existing materials management
practice (i.e., evaluating the benefits of recycling relative to source reduction,
composting, combustion or landfilling), the recycling GHG emissions must be
compared against the corresponding emission factors for the existing management
practice. According to the EPA, source reduction techniques, such as double-sided
copying and reducing the weight of products (light-weighting) are important in
reducing energy because source reduction significantly lowers energy consumption
associated with raw material extraction and manufacturing processes.
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During composting, microbial decomposition aerobically transforms organic
substrates into a stable, humus-like material (Brown and Subler, 2007).
Composting results in some carbon storage (associated with application of compost
to agricultural soils), as well as minimal CO2 emissions from transportation and
mechanical turning of the compost piles. The GHG reduction benefits from
composting include a comparison between composting and other possible disposal
options for yard trimmings (i.e., landfilling and combustion).
According to the EIA, the solid waste industry currently produces more than half of
America's renewable energy, more than combined energy outputs of the solar,
geothermal, hydroelectric, and wind power industries. Landfill-gas-to-energy
projects involve capturing methane and waste-to-energy activities displace fossil
fuel sources and lower landfill methane emissions by diverting waste from landfills
helping to reduce GHG emissions.
In the unincorporated County, disposal of solid waste is currently handled by three
transfer station operations where waste is prepared for transportation and disposal
at an out of county location. The County provides recycling services for residential
properties but businesses must arrange for service with local providers as outlined
in the Solid Waste Element.
Almost all impacts from climate change relate to increasing air temperatures with
global sea level rise largely attributable to the thermal expansion of the oceans and
melting of glaciers and ice sheets.22 Altered precipitation patterns, heat waves, floods
and droughts are all related impacts. Not all impacts will be uniform and there will be
some variation by location due to differences in atmospheric and oceanic circulation.
Inundation, erosion and flooding are also resulting impacts. Areas with greater
precipitation will see more sewer overflows, more runoff and nonpoint pollution, and
infrastructure overloading. Areas of lesser precipitation with struggle with meeting
water demands and habitat shifts. A great area of uncertainty is the combination and
interrelationships of these impacts in the future. In particular, predicted changes in
storm intensity and sea level rise create the need for integrated potable water, storm
water,and wastewater infrastructure planning and greater interagency coordination.
Approximately 100 years ago, early in the Industrial Revolution, sea level rise began
to accelerate, averaging about 2 mm/yr during the 20th century and 3.1 mm/yr
since 1993 based on satellite altimetry (Cazenave et al., 2008). On average, globally,
the sea level has risen by approximately 200 mm (8 inches) during the past century
(IPCC, 2007). As illustrated in Table 30, a Florida Institute of Technology Report
(Maul, 2008) shows an average rate of sea level rise of 2.27 ± 0.04 mm per year from
22If global atmospheric temperatures rise, the oceans will absorb more of that heat and expand
known as "thermal expansion".A greater volume of ocean water due to thermal expansion will lead
to a rise in sea level. Lombard,A.; Cazenave,A.; Le Traon, P., Contribution of Thermal Expansion to
1993-2003 Sea Level Rise(2005).
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1915 to 2005 based upon tide gauge readings in Key West, which has the Western
Hemisphere's longest sea level record.
Table 30 -Average Rates of Historical Sea Level Rise (Heimlich et al., 2009)
Global average sea level 71870- 2.0 mm/yr Church and White, 2006
1990
Global Average sea level rise, 1993- 3.1 mm/yr Cazenave et al., 2008
2007
Miami, Florida, 1931-1999 2.39 ±0.22 US EPA, 2009
mm r
Key West, Florida, 1913-1999 2.27 ±0.09 Maul, 2008
mm r
Source: Heimlich et al., 2009
The rate of sea level rise is accelerating, although scientists differ on that rate of
acceleration; over the past 2,500 years south Florida has experienced an average
rate of sea-level rise of 3.8 centimeters per century. From 1932 to 2000, tide-gauge
data reveals that the sea level rose by 22 centimeters, a rate equivalent to 30
centimeters per century or 8 times higher than the average rate over the past 2,500
years. Today, analysis of satellite data suggests the sea level is rising 50 percent
faster than it was just 15 years ago (IPCC 2007). An increasing number of papers
concerning future sea level rise due to climate change are appearing in the scientific
literature. Publications and reports about future rates of sea level rise to date apply
relatively simple empirical correlations and extrapolations based upon limited
historical data.
Sea level rise data is generally considered to be a conservative estimate of the
impacts for the following reasons:
• Most of the sea level rise in the 20th century was due to thermal expansion as a
result of rising global temperatures;
• A relatively small contribution was from the melting of ice sheets and glaciers
and may not be a reliable guide for the increasing contributions due to melting in
the 21st Century; and
• The mechanisms of glacial melt and flow are not well understood (Heimlich et
al., 2009) but numerous scientific publications point to acceleration.
Extensive research is underway on this important issue and better projections will
no doubt be forthcoming. There does not appear to have been a significant
difference in sea level rise during the 20th Century between Southeast Florida and
globally; therefore, published predictions for global sea level rise are applicable
locally. Figure 12 shows the diversity of some of these predictions. Figure 13
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shows the current Unified Sea Level Rise Project agreed to by the participants in the
Southeast Regional Climate Compact:
E Florida Projections
eo I I o
KCV
ee west Sea Lewfed I I d ee
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ee Broward CCTF Science and I I d tee
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' FA —S FI Rest Ifent water Res
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o Y o
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Source: Southeast Florida Regional Climate Change Compact(2011).
Figure 12 - Sea Level Rise Predictions, (SE Regional Climate Compact)
The Remainder of This Page Left Intentionally Blank
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Unified SLA Rise " I
q ,.�.. Yxf[Y�Mh I'C4MS�'�F1W`�h I�MIPNa!CN�Y4Y:�AY�7 II{��IrY�dry� I�Wo�Ipkm�4a�i1h��,'4w Gd��nh'�'M1P ,. :;i�
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Source: Southeast Florida Regional Climate Change Compact(2011).
Figure 13- Unified Sea Level Rise Projections of the Southeast Regional
Climate Compact
The Nature Conservancy (TNC) evaluated the impacts of sea level rise on Big Pine
Key and the Florida Keys (Bergh, 2009). In 2007, TNC acquired high-resolution
Digital Elevation Models derived from airborne Light Detection and Ranging
(LIDAR) data for Big Pine Key and the best-available Digital Elevation Model for the
entire archipelago. Future shoreline locations and distribution of generalized
habitats of Big Pine Key in the year 2100 were estimated using sea level rise
scenarios described in the scientific literature. Property value loss estimates for Big
Pine Key were based on the same 2100 sea level rise projections using 2008
property values. In every scenario, the island becomes smaller, marine and
intertidal habitat moves upslope at the expense of upland habitat, and property
values are diminished.
In the best-case scenario, 18 cm (7 in.) of sea level rise, 1,840 acres (34 percent) of
Big Pine Key are inundated resulting in the loss of 11 percent of the island's upland
habitat. This degree of inundation would displace native species dependent on
upland habitat and threaten $40 million of property value. Four other scenarios are
modeled for Big Pine Key using the same high-resolution data. With a rise of 140 cm
(4.6 ft.), the highest modeled rise, about 5,950 acres (96 percent) of the island
would be inundated with all upland habitat and $1.6 billion in property value lost
(Bergh, 2009).
Under the most optimistic Intergovernmental Panel on Climate Change scenario (a
rise of 18 cm over the next 100 years), $11 billion in property value and 58,800
acres are at risk of inundation in the Florida Keys (Bergh, 2009). Under the highest
Rahmstorf (2007) estimate (a 140 cm rise by 2100), approximately $35 billion in
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property value and 142,000 acres are at risk from sea level rise or are already
inundated in the Florida Keys (Bergh, 2009).
Plant and animal species and natural processes of ecological systems have evolved
to fit specific climate regimes. Certain biological processes (e.g. flowering of plants,
migration of birds) and ecological processes (e.g. natural fire regimes, aquifer
recharge) are dictated by seasonality and these processes are sensitive to changing
climate regimes. Some species may have the ability to adapt to slower changes by
dispersing to habitat that meets their needs, but the insular nature of the Keys will
prevent species that cannot fly or swim long distances from dispersing naturally and
more abrupt climate related shifts may threaten even highly mobile plant and
animal species. Ecological disturbances related to climate change (e.g. flooding,
storms) also invite an increase in non-native species which compete for resources
with native species.
The effects of sea level rise on the natural habitats of the Keys are already apparent.
In the publication, "Sea Level Rise and the Reduction in Pine Forests in the Florida
Keys," Ross et al. (1994) surveyed upper Sugarloaf Key elevations, vegetation
distribution, groundwater salinity and other factors and examined historic aerial
photographs from 1935 to 1991, ultimately learning that the area of pine forest on
Sugarloaf Key declined from an initial 88 hectares ("ha") (217 acres) before 1935 to
30 ha (74 acres) by 1991. Transformation of pine forest to more salt-tolerant
vegetation types proceeded continuously over that time period and advanced from
lower to higher elevation, leading the authors to attribute the decline in pine forest
area to sea level rise.
Simply stated, as sea level rises, water over land displaces tidal habitat, which
moves upslope and in turn displaces transitional habitat, which moves upslope and
displaces upland habitat(Bergh, 2009). As sea level rises, some habitats will change
rapidly and others will disappear. Although not well documented in the literature
yet, it is widely believed that many native plants and animals, particularly the
already imperiled species, those with limited ability to disperse naturally and those
dependent upon freshwater or other climate or sea level-sensitive habitat
requirements for all or a portion of their lifecycle will have an increasingly
precarious existence as sea level rises.
There is ongoing debate regarding whether global warming will increase the
frequency or intensity of hurricanes. Regardless, hurricanes are likely to be more
destructive to coastal areas because an elevated sea level will cause higher storm
surges that will penetrate further inland. Hurricane Wilma caused $215 million in
damage to the County. (2005) Based on work by Harrington and Walton (2008),
when a similar storm hits the County after sea level rise of 1.02 ft, the damage costs
are predicted to be 39 percent higher ($298 million). When a similar storm hits the
County after sea level rise of 2.13 ft,the damage costs are predicted to be 72 percent
higher ($370 million). The County is more susceptible to increased damage costs
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than neighboring Miami-Dade County. For the latter storm described above, the
percent increases in damage costs from storm surge are substantially higher for the
County (72 percent) than Miami-Dade County (31 percent) (Harrington and Walton,
2008).
Hurricane return periods were evaluated by FEMA in a Flood Insurance Study for
the County (FEMA, 2005). The purpose of the County Flood Insurance Study was to
develop flood risk data for various areas of the County, to establish actuarial flood
insurance rates, and assist the county in promoting sound floodplain management.
Hurricane Wilma resulted in a 2.76-foot (0.84 m) high surge in the County. Based
on FEMA's study, it was classified as a 7.35-year hurricane event. For sea level rise
scenarios of 0.28 ft (8.53 cm) and 1.02 ft (0.31 m) (Florida State University's
Beaches and Shores Resource Center estimates for years 2030 and 2080), the same
hurricane storm surge as Wilma would be reduced from 7.35 years to 6.04 years
and 3.61 years, respectively. For a 0.49-foot (14.9 cm) and 2.13-foot (0.65 m)
scenario (Intergovernmental Panel on Climate Change estimates for years 2030 and
2080), the same hurricane storm surge would be reduced to 5.22 years and 1.65
years, respectively. It is important to note that at a given elevation, sea-level rise
increases the likelihood of storm-surge flooding and synergistic effects between
these two variables could cause upland habitat to be reduced more rapidly than
predicted. For example, sea-level rise has rendered pine forests in the Keys more
vulnerable, by reducing the area capable of capturing precipitation and recharging
fresh groundwater supplies. Droughts that sometimes follow late- season
hurricanes can further diminish the volume of freshwater available to dilute salts
deposited by storm surge. A second mechanism that may exacerbate the situation is
that the background level of the water table is brought closer to the surface
resulting in reduced drainage capacity. The interaction between sea-level rise and
storm surge will soon reach a tipping point with respect to the maintenance of
freshwater ecosystems in the County.23
Oceans are being acidified by carbonic acid formed from dissolved carbon dioxide
and a corresponding decrease in pH; this is detrimental to marine resources. The
oceans have absorbed about 50 percent of the carbon dioxide released from the
burning of fossil fuels, resulting in chemical reactions that lower ocean pH. This has
caused an increase in hydrogen ion (acidity) of about 30 percent since the start of
the industrial age through a process known as ocean acidification. A growing
number of studies have demonstrated adverse impacts on marine organisms,
including (1) the rate at which reef-building corals produce their skeletons
decreases, (2) the ability of marine algae and free-swimming zooplankton to
maintain protective shells is reduced, and (3) the survival rate of larval marine
species, including commercial fish and shellfish, is reduced. The reduced rate of
coral reef building could lead to diminished resiliency from bleaching, disease, and
23 Michael S Ross,Joseph J O'Brien,R Glenn Ford, Keqi Zhang,and Anne Morkill,"Disturbance and the
rising tide: the challenge of biodiversity management on low-island ecosystems", Front Ecol Environ
2009; 7,doi:10.1890/070221.
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coral death. Reef building rates could decrease to levels insufficient to maintain
reefs in any oceans when atmospheric carbon dioxide levels reach approximately
840 parts per million,which may be reached by the year 2100 (NOAA, 2008).
While the precise level of sea level rise, or speed with which it rises, may not be
known, sea level rise will reduce the amount of fresh water available for potable
water use. The County's wellfields in Miami-Dade County are at risk from sea level
rise impacts because of the low elevation of southern Miami-Dade County and the
elevation of the groundwater within the Biscayne Aquifer close to the surface level.
The easterly wellfields of Miami-Dade County are at risk from saltwater intrusion
caused by sea level rise, and to the west, inundation of the southern Everglades with
seawater would also affect the Biscayne Aquifer (Heimlich et al., 2009). This impact
will be even more pronounced during the dry season potentially impacting the
location and continued productivity of certain wellfields. The relationship between
future growth and alternative water supply planning will become an even more
important consideration as traditional water resources will become impacted in the
future from sea level rise.
In the future, increased water conservation through demand management will
become even more important as supplies could become scarce. Equally important is
that reduction of water use, treatment and distribution through more aggressive
water conservation mitigates the use of energy to maintain infrastructure. Cutting
the demand for landscape irrigation, generally the highest type of water use,
becomes more of a priority to meet both goals. Given the County's history related to
water conservation, additional focus should be placed on more upgrades to the
efficiency of water use such as in buildings and irrigation infrastructure.
Wastewater Impacts: Wastewater treatment contributes CO2, CH4, and N20 in
quantities totaling approximately 3.4 percent of total US GHGs. CO2 and N20 are
generated in aerobic (e.g. activated sludge) treatment. CH4and CO2 are generated in
anaerobic (e.g.biosolids digestion) treatment. Wastewater treatment facilities use a
great deal of electricity to run the equipment. Greater power consumption
efficiency in wastewater treatment can significantly lower GHG emissions.
Encouraging full utilization of the energy products from the wastewater treatment
process, such as biosolids and methane gases can mitigate some of the impacts from
process energy use. The decomposition of the sludge generated in the treatment of
wastewater causes significant contributions of methane to the atmosphere. Sludge
can be shipped off-site to a landfill or treated on-site by composting, incineration or
digestion. Methane emissions generated in these processes are normally lost to the
atmosphere, but the process of anaerobic digestion allows the methane to be
captured. Due to global interest in reducing greenhouse gas emissions, it is
anticipated that anaerobic digesters could be installed to reduce methane emissions
from wastewater treatment facilities more commonly. Methane is not only a
greenhouse gas; it is also a source of energy when it is burned. As a result, power
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generators can be installed at wastewater treatment facilities to burn the methane
emitted from anaerobic digesters and the electricity can be used to power
equipment at the facility.
Impacts to treatment processes, system hydraulics and conveyance facilities may
occur at pump stations, plants and distribution lines. Another impact to wastewater
infrastructure could stem from increased chlorides in raw wastewater which will
result in different treatment requirements depending on whether the wastewater is
injected or reused. Flooding may impact wastewater infrastructure as well
necessitating protective improvements to maintain capacity and processing of
wastewater. In particular, it is noted that the anticipated service life of
infrastructure becomes an increasingly important consideration given anticipated
climate change.
As sea level rise occurs, drainage and stormwater structures will diminish in their
effectiveness to direct and capture stormwater flows. Since the rate of sea level rise
is uncertain, this loss of effectiveness will take place over a gradual progression
reducing the difference between water levels on either side of a flood control
structure (Heimlich et al., 2009). Eventually, a structure could lose its entire
operational capacity if the water levels upstream and downstream are equal. Effects
of the loss of this operational capacity could occur with as little as three to six inches
of sea level rise predicted as soon as the next 10 to 25 years (Heimlich et al., 2009).
Additionally,the capacity of the ground to absorb stormwater is reduced.
The lower topography of a region will result in even more challenges for operating
flood control structures. The gradual loss of operational capacity of flood control
structures could be exacerbated by the increased frequency and intensity of major
storm events. These considerations will need to be factored into the design of flood
control structures with further specific vulnerabilities identified.
More intense storms will result in increased storm water and non-point runoff.
Water quality vulnerabilities will also occur such as increased algae growth, higher
levels of water quality indicators such as fecal coliform bacteria and turbidity, pH
changes and higher water temperatures. Aquatic life will be impacted by the change
in water temperature and changes in seasonality; changes in nutrient loading; and
increased eutrophication. Warmer water temperatures will reduce assimilative
capacities of surface waters and increase the impacts of certain pollutants, leading
to more impaired waters and more complex water quality and regulatory
challenges.
Other infrastructure could be impacted in the future including, but not be limited to,
hospitals, libraries, transportation facilities, multi-modal stations and commercial
centers. Additional infrastructure impacts that also need to be considered include:
historic or archaeological resources, existing landfills, abandoned dump sites,
remnant septic tanks and underground storage or petroleum tanks. Determining
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the life expectancy of a project, as related to capital investment, is also a critical
factor to consider for decisions related to the development, or improvement to,
infrastructure in the face of sea level rise and other climate change impacts.
Economic decisions related to the funding of capital improvements will have to be
made in the context of strategies to mitigate impacts to infrastructure.
It is also important to consider the value of the County's "green infrastructure" and
the corollary benefits it provides when considering energy and climate issues.
Practices such as aggressive onsite water conservation, wetlands and habitat
enhancement/maintenance, transportation systems with alternative paving
materials and onsite stormwater retention have long been known for their benefits
related to heat island effect, water quality improvement, improved air quality, lower
energy demand and increased carbon storage. But now, green infrastructure
approaches have been recognized to help achieve GHG mitigation and climate
change adaptation goals because their benefits are also generally related to their
ability to moderate the impacts of climate change such as extreme precipitation or
temperature.24 In many instances, maintenance and enhancement of green
infrastructure involves stewardship of the natural setting (e.g. preventing and
controlling exotic species invasions, maintaining fire regimes, restoring wetlands,
etc.). This concept is also known as Ecosystem Based Adaptation (EBA). For
instance in the context of the County, the reefs, natural beaches, coastal berms,
wetlands and other natural communities are just as important for protecting people
and the built environment from the negative consequences of climate change as
"grey infrastructure"such as seawalls, stormwater drains.
A concurrent benefit is that green infrastructure attributes provide these resiliency
benefits at a much lower cost than constructed infrastructure components.25 Green
infrastructure approaches can be implemented at the macro level with larger
centralized public projects or at the micro level on private property.26 Economic
values can also be placed on green infrastructure assets in terms of carbon
sequestration and the cost savings with maintaining certain habitat functions as
opposed to constructed solutions such as sea walls.27 The County could benefit
from considering how green infrastructure practices can achieve resiliency goals
with less adverse impact and cost.
24 Foster, Lowe and Winkelman, "The Value of Green Infrastructure for Urban Climate Adaptation",
February 2011.
2s Id.
26 Id.
27 For instance a 20%tree canopy over a house results in annual cooling savings of 8-18%. Id.
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C. Policy Framework
1. Policy 101.4.22 states that, all development shall be subject to clearing limits
defined by habitat and the location of the property in the Land Use District
(zoning) Overlay Tier Maps and the wetland requirements in Policy 102.1.1. The
clearing limits of upland native vegetation areas for properties in the Ocean Reef
planned development shall be limited to 40 percent of the existing upland native
vegetation. Except as defined in Policy 101.12.4, clearing of upland native
vegetative areas in the Tiers I, II, and III shall be limited for the portion of the
property containing upland native vegetation in the following percentages:
Tier Permitted Clearing
I 20%
II 40% (Big Pine Key and No Name Key)
III 40% or 3,000 s.f. whichever is greater; however,the maximum
amount of clearing shall be no more than 7,500 square feet,
regardless of the amount of upland native vegetative area.
*Palm or cactus hammock is limited to only 10%
D. Strategies
• The County will address energy conservation and climate change in the context
of the Comprehensive Plan and in its role as a signatory to The Southeast
Regional Climate Compact.
• The County should discourage sprawl by considering a development's impact or
furtherance of the conservation of water and energy.
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• Council on Environmental Quality (CEQ) suggests that where climate change
effects are likely to be important, but there is significant uncertainty about such
effects, it may be useful to consider the effects of a proposed action or its
alternatives against a baseline of reasonably foreseeable future conditions that is
drawn as distinctly as the science of climate change effects will support.
Baseline information is helpful on two levels. First it is helpful in terms of
understanding and prioritizing energy use to reduce GHG emissions. Second, it
is helpful in terms of understanding what is vulnerable to the impacts of climate
change. Without such baseline information on the mitigation or adaptation level,
it is difficult to assess the types of strategies to employ to alleviate future
impacts.
• To date, the County has initiated an effort to quantify energy use for its facilities
and operations. While local government GHG emissions are typically a small
percentage of the overall communitywide footprint, this sector of emissions is
critical for two reasons. First the County leads by example. Second, knowing a
local government's GHG emissions provides a mechanism to prioritize GHG
emissions and energy use. Typically, water and wastewater facilities are among
the largest and most energy-intensive systems owned and operated by local
governments and account for approximately 30-50 percent of municipal energy
use according to EPA. Streamlining, retrofitting and implementing efficiency
projects at the County level, based on prioritized energy use data, will be critical
to meet the County's GHG target for county operations (Resolution 067-2010).
Additional countywide GHG emissions data should be collected as it will be useful
to help meet the County's goal of a 20 percent countywide reduction of GHGs by
2020 as measured from a 2005 baseline inventory.
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• The consequences of climate change impacts and strategies to address those
impacts must be planned for in the future. This includes identification of
infrastructure deemed to be "vulnerable" or susceptible to adverse impacts and
the resilience factors to be considered. The capacity of that infrastructure to
maintain levels of service can then be evaluated. An Asset Management Plan, or
harmonizing the County's Local Mitigation Strategy (LMS) process with
achieving this goal, could establish a comprehensive baseline of infrastructure
under the County's control. This process should also include an inventory of
green infrastructure under the County's control. Building upon the existing LMS,
additional protection, accommodation, adaptation or resiliency strategies could
then be developed to address access and operation of this infrastructure.
• Complicating the identification of vulnerable infrastructure and facilities, social
and economic diversity issues will also warrant further review. Different
populations will be impacted in various ways and this will be evidenced by
issues related to access to affordable housing, infrastructure dependence, wealth
and age. The County should consider identifying physical as well as social
impacts.
• Upon mapping and prioritizing areas that may be vulnerable to sea level rise
impacts, protection, accommodation and retreat strategies can be developed.
Protection strategies could include the green infrastructure principles discussed
as a means of managing systems to prevent the landward migration of tidally
influenced water bodies. This could include shoreline stabilization via shoreline
armoring, protection of wetlands and other natural communities that minimize
erosion or a combination of engineered and nature-based solutions. This could
require analysis of current and future land acquisition practices and priorities
for same. Accommodation strategies may include adaptation of buildings or
infrastructure to the periodic impacts of storm surges that also account for rise
of sea levels. This could include increased or improved management of flood
management systems. Retreat strategies include relocation of structures and
infrastructure from areas that will be subject to increased and repeated impacts.
A County planning effort such as this will also provide necessary information to
dovetail with the various Work Groups of the Southeast Regional Climate
Compact and the existing LMS. The County should obtain more data based on
specific planning horizons. This will assist in determining which strategies to
implement and consider in the future.
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• The County should consider striving to reach the goal of becoming a resilient
community by anticipating, preparing for, responding to, and recovering from
significant multi-hazard threats with minimum damage to social well-being, the
economy and the environment. To reach this goal, the County should consider
employing the "Guiding Principles for Climate Change Adaptation" developed by
the CEQ:28
o Adopt integrated approaches;
o Prioritize the most vulnerable;
o Use best-available science;
o Build strong partnerships;
o Apply risk-management methods and tools;
o Apply ecosystem-based approaches;
o Maximize mutual benefits; and
o Continuously evaluate performance.
• Many of these Guiding Principles are already being implemented by the County
such as using best available science and building partnerships and adoption of
integrated approaches through maintaining the LMS. But, it is also important to
continue monitoring for impacts from climate change throughout the County to
achieve better understanding of the timeframe and rate at which impacts will be
experienced. This can be done through updating the energy use and
infrastructure asset baselines mentioned earlier.
• The County should consider utilizing the recommendations of the Green
Initiatives Task Force, the new Climate Change Advisory Committee, and the
strategies developed from the Southeast Regional Climate Compact, to develop a
more robust climate change response strategy incorporating the concepts of
mitigation of GHG emissions, adaptation and resilience to climate change
impacts based on the CEQ Guiding Principles.
• The County should consider reviewing the clearing limits in established under
Policy 101.4.22. Conserving the remaining natural vegetated habitats, and
reducing the amount of vegetation to be removed when a site is developed.
• The County should consider using native shade trees and landscaping to expand
green spaces in scarified and developed areas.
28 Council on Environmental Quality, Implementing Climate Change Adaptation Planning in
Accordance with Executive Order 13514, "Federal Agency Climate Change Adaptation Planning",
Support Document,March 4,2011.
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• Instead of sod in turf grass lawns, easements, and rights-of-way, the County
should consider using native plants and trees to provide greater carbon
sequestration.
• The County should consider researching the use of green infrastructure
principals such as vegetated roofs and other sustainability practices in
construction and renovations.
• The County should encourage water conservation strategies (including but not
limited to use of cisterns, stormwater on-site collection systems used for
irrigation, and bio-swales) that reduce the demand for surface water treatment
in the natural environment while maintaining the viability of freshwater
wetlands and upland forested natural communities.
• The shift of the County's land acquisition efforts in recent years to focus on the
higher quality hammocks is a natural resource factor affecting energy
conservation and as such the County should consider establishing a recurring
funding source for effective long-term management of acquired lands which can
increase or maintain their carbon sequestration attributes.
• The County should consider developing GOPs for a separate Energy and/or
Climate Change Element.
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IV. Public Facilities Funding
Issue Statement: Assure adequate capital funding to complete necessary
improvements or purchase lands for conservation or affordable housing
purposes.
A. Background: During the series of public workshops to develop the major
issues upon which the EAR would focus, concerns were voiced regarding the County's
ability to pay for needed wastewater and drainage projects. Additionally, the County
maintains a Capital Improvements Program which identifies public capital facility
projects to be funded over a five year period. This program identifies each project the
County plans to undertake during that time frame, along with estimates of the costs of
each project. The Capital Improvements Program serves as a guide for planning the
County's public facility projects, and is implemented through an annual capital
budget. The County plans for certain facility types through its Capital Improvements
Program; while others are provided by independent agencies or by private
development.
The MCLDC, Section 114-2 mandates an annual assessment of the roads, solid waste,
potable water and school facilities serving the unincorporated portion of the County.
In the event that these public facilities have fallen or are below the level of service
(LOS) required by the MCLDC, development activities must conform to special
procedures to ensure that public facilities are not further burdened. The MCLDC
clearly states that building permits shall not be issued unless the proposed use is or
will be served by adequate public or private facilities. The Public Facilities Capacity
Assessment Report distinguishes between areas of adequate, inadequate and
marginally adequate facility capacity. Inadequate facility capacity is defined as those
areas with capacity below the adopted LOS standard. Marginally adequate capacity is
defined as those areas at the adopted LOS standard or that are projected to reach
inadequate capacity within the next 12 months.
Chapter 163, F.S. requires that public facilities and services, including sanitary sewer,
solid waste, drainage, potable water, and mass transit (if applicable), be available
concurrent with the impacts of development. MCLDC, Section 114-2, addresses four
of the public facility types (roads, solid waste, potable water, and schools) The
Technical Document update (July 2011) establishes new levels of service for all of the
facility types with the exception of mass transit. Because mass transit service is not
provided by the County, a level of service standard for mass transit is not established;
however, Chapter 5.0 Mass Transit of the updated (July 2011) Technical Document
does establish a level of service for providing paratransit service to the transportation
disadvantaged.
B. Analysis: With the exception of the wastewater treatment systems and
stormwater projects, the County has adequate funding to meet the capital
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improvement needs of the residents and property owners of the unincorporated
areas of the County.
The following list of improvements was derived from the recent (June 2011)
update of the Technical Document section of the County's Plan:
1. Roads: The Division of Public Works is responsible for maintaining and
improving County roads, while the Florida Department of Transportation (FDOT) is
responsible for maintaining U.S. 1. No roadway improvement projects impacting the
level of service are required or planned for County-owned roads.
FDOT Five Year Work Program (Year 2010-Year 2014) includes numerous projects in
the County including the installation of bike paths; roadway reconstruction, widening
and resurfacing; and adding turn lanes. Several bridge improvements are also
planned,including:
• S.R. 5/Overseas Highway/U.S. 1 Indian Key Channel Bridge Project: At Mile
Marker 78
- This project is repairing concrete on the underside of the bridge;
- Project start date: July 2010 ; and
- Project estimated completion date: Spring 2011.
S.R. 5/Overseas Highway/U.S. 1 Big Pine Key/Spanish Harbor Channel Bridge
Repair Project: From Mile Marker (MM) 33.0 to 33.7
This project is repairing the bridge.Work also includes painting the walls;
Project start date: August 2010; and
Project estimated completion date: Spring 2011.
• S.R. A1A/South Roosevelt Boulevard/Riviera Canal/Thompson Creek Channel
Bridge Repair Project: At Mile Marker (MM) 2.5
- This project is repairing the bridge and repaving the bridge;
- Project start date: July 2010; and
- Estimated project completion date: April 2011.
• S.R. 5/Overseas Highway/U.S. 1 Tom's Harbor Channel Bridge Repair Project: At
Mile Marker (MM) 60.6
- This project is repairing the underside of the bridge;
- Project start date: July 12, 2010; and
- Estimated project completion date: June, 2011.
Mass Transit: The County does not currently operate or have plans to construct mass
transit facilities. Therefore, no mass transit capital improvements are required.
Although the County does provide paratransit service to the transportation
disadvantaged, the costs of providing this service are considered operating rather
than capital expenses.
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2. Ports: A"port facility"is a harbor or shipping improvements used predominantly
for commercial purposes. The only port facility meeting this definition in
unincorporated Monroe County, is located on Stock Island. This port is privately
owned and operated.
3. Aviation: Within the County, there are eight airport facilities. One of these, Key
West International Airport (KWIA) is the only commercial airport currently serving
the community. The Florida Keys Marathon Airport (FKMA) provides only general
aviation services, although non-scheduled air taxi service is provided. There are
also four private airports or airstrips, one seaplane facility, and one military aviation
facility: the U.S. Naval Air Station Key West(NAS Key West).
The KWIA and the Naval Air Station are situated in the Lower Keys. The FKMA is
located in the Middle Keys. The seaplane facility is located on Stock Island. The four
private airstrips are located throughout the Florida Keys ("The Keys").
There are currently no major programmed and/or budgeted projects planned for
the near future at KWIA.
At FKMA, there are currently two proposed future airport enhancements: (1) a new
hangar by the former Paradise Hangar, and (2) a new Emergency Center Operations
facility. While these two facilities are planned for future implementation, neither
are currently programmed or budgeted.29
4. Potable Water: Potable water service is provided to the County by the FKAA, an
autonomous entity created by Chapter 76-441, F. S., as amended. The FKAA has a
long range capital improvements plan which addresses both distribution systems and
transmission and supply systems improvements through the year 2020. The
program's projected expenditures total is $208.6 million, with $47.5 million
earmarked for distribution system improvements and $33.5 million earmarked for
pump and storage improvements. The FKAA capital improvements plan is to be
funded by system development fees and the existing surcharge on water sales.
The FKAA assesses System Development Fees to new and existing customers who
modify, add to or construct facilities which impose a potential increased demand on
the water system. This fee is charged in order to equitably adjust the fiscal burden of
new pipeline and to expand or improve appurtenant facilities between existing
customers and new water users. All system development fees are allocated to the
direct and indirect cost of capital improvements made necessary by actual and
expected increased demand on the water system. In addition, the FKAA is authorized
to charge tapping fees,meter test fees,and investigation fees.
29 URS,Inc.,September 2010.
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S. Solid Waste: Solid waste collection, recycling and disposal in the County is
managed by the Public Works Division. Until 1991, the County's solid waste disposal
methods consisted of incineration and landfilling on sites on Key Largo, Long Key, and
Cudjoe Key. In December 1990, the County entered into a five-year renewable
contract with Waste Management, Inc. (WMI) to haul the County's solid waste to the
contractor's private landfill in Broward County. In conjunction with this change in the
County's solid waste disposal methods, capital expenditures were made to close the
three landfills, establish transfer stations at the landfill sites for processing of waste
prior to transport out of the County, and initiate recycling programs. Costs of the
current haul out contract and recycling programs are considered to be operating
rather than capital expenses.
6. Sanitary Sewer: Treatment of sewage and the disposal of wastewater within the
County historically have been accomplished through septic tanks, on-site treatment
and disposal systems (OSTDS), and small to intermediate sized privately-owned
wastewater treatment package plants. With expansion and growth, regional systems
consisting of treatment plants and centralized sewer have been built providing a
greater level of collection and treatment. Several sewer districts, both private and
municipal,have been formed to service more densely populated areas.
The Monroe County Sanitary Wastewater Master Plan (SWMP) was adopted in June of
2000 called for several measures including the following:
• Replacement or upgrade of onsite systems to Onsite Wastewater Nutrient
Reduction Systems (OWNRS);
• Creation of 12 community collection systems, five of which are to be phased into
regional systems;
• Address hot spots with community systems by 2010; and
• Upgrade 17 facilities to BAT/Advanced Wastewater Treatment(AWT) by 2010.
In addition, facilities were to be upgraded to accommodate water reuse programs
and the distribution system was to be installed. The major drawbacks to reuse cited
in the Master Plan include the lack of large users and economic feasibility. Although
originally planned to provide compliance by July of 2010, the Master Plan has fallen
short mainly due to a gap in funding.
In April 2010, the Florida Senate and House approved SB 2018 extending the
deadline for compliance to the end of 2015, and postponing fines and potential liens
against property owners. In addition, the bill authorized $200 million of State
funding for improvements; however, the source of funding currently remains
unresolved.
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Through the SWMP, many regional improvements including facilities and collection
systems have been identified; and these planned improvements are in various
stages of completion. The primary obstruction hindering implementation has been
funding.
7. Drainage: Recognizing the present inadequacy regarding surface water
management in the County, a Stormwater Management Master Plan (SMMP) was
completed in 2001 to assess the need for design of drainage systems in the developed
portions of the County; however, the focus of the SMMP is on public facilities, and
does not address the needs of many of the private stormwater management systems
throughout the County.
The County's present stormwater management practices have been revised, partially
as a result of information and recommendations provided in the SMMP. However,
these revised practices have not been adequate to solve all of the problems associated
with stormwater management.
The SMMP did identify a significant number of stand alone improvements, some of
which have been implemented, that have had positive water quantity and quality
impacts in localized areas. A number of SMMP referenced projects are in various
stages of completion. Projects identified that have been completed or are in process
include: El Prado Circle on Big Coppitt Key, Card Sound Road (SR905A), Marathon
Government Center, Burton Drive at U.S. 1 in Tavernier, Jo-Jean Way in Tavernier
and Veterans Park in Little Duck Key. It should be further noted, projects associated
with U.S. 1 right-of-way are the responsibility of FDOT. The County has partnered
with the FDOT on numerous occasions and look forward to maintaining this
partnership.
8. Parks and Recreation: The Recreation and Open Space Element, from the July
2011 Technical Document classify recreational areas as being either "activity-based"
or "resource-based". Activity-based (or user-based) recreation lands or facilities are
not dependent upon a specific resource and are typically developed with recreation
and support facilities which can be provided almost anywhere for the convenience of
the user. Resource-based recreation lands and facilities focus around a significant
natural or preserved resource and include appropriate recreation activities which
occur in a particular natural setting of that resource. The Recreation and Open Space
Element establishes level of service standards for both activity-based and resource-
based recreational land. The projections for recreational lands and facilities for the
year 2010 and subsequent years 2015 through 2030 generally show the recreation
needs are adequately provided for and will meet future needs of the functional
population of the County.
9. Developer Funded Improvements: Developers in the County primarily pay
impact fees, connection fees and proportionate fair share funding. Wastewater
treatment is provided either on site or through connections to existing systems.
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With the exception of wastewater, recreation and open space facilities, local roads
and stormwater, capital improvements necessary to maintain the Level of Service
are generally provided by external agencies, e.g., potable water (provided by FKAA);
US-1 improvements, funded by FDOT and school facilities (Monroe County School
Board).
10. Land Acquisition for Conservation and Affordable Housing Purposes: The
County's policies appear to be adequate related to habitat preservation and a
prioritization of land acquisition. The Monroe County Land Authority sets aside 35
percent of its budget to purchase lands for administrative relief for those applicants
who qualify.
Additionally, the County's policies relative to land acquisition for affordable housing
have been implemented and are ongoing in nature. However, due to land costs and
the limited availability for appropriate sites, pursuant to Policy 601.1.14, the Land
Authority has had limited opportunities, since the last EAR (August 2004), to
purchase lands for affordable housing.
11. Impact Fees: Impact fees are designed to pay for the infrastructure needs that
result from development. The fee charged must reflect the cost of the improvements
and fee expenditures must directly benefit the fee payer. Impact fees may not be
collected or used for public facility deficiencies that existed prior to the development's
impact. Historic fees collected by the County are illustrated in Table 31. Impact fees
are not a large part of the County's budget. The County began charging impact fees in
fiscal year 1986 to fund libraries, police, solid waste, parks, and transportation. The
County is expected to collect roughly $129,000 in combined impact fees in 2011
(Table 32).
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Table 31 - Impact Fee Revenues, Detailed by Fund, 2000 -2010
Fiscal
Year
$18,314.0 $41,560.0 $59,661.0
2000 $295,432.00 $75,190.00 0 0 0
$15,752.0 $27,254.0 $49,804.0
2001 $147,866.00 $52,365.00 0 0 0
$12,878.0 $24,673.0 $41,655.0
2002 $268,480.00 $41,490.00 0 0 0
$11,185.0 $24,345.0 $44,222.0
2003 $138,728.00 $59,398.00 0 0 0
$13,442.0 $26,693.0 $55,441.0
2004 $173,090.00 $76,728.00 0 0 0
$11,871.0 $24,011.0 $54,242.0
2005 $168,707.00 $66,640.00 0 0 0
$21,234.0 $58,858.0
2006 $161,386.00 $46,921.00 $9,884.00 0 0
$22,961.0 $48,634.0
2007 $145,393.00 $56,440.00 $9,954.00 0 0
$14,408.0 $31,508.0 $31,618.0
2008 $104,178.00 $38,080.00 0 0 0
$19,651.0 $38,928.0
2009 $119,206.00 $40,460.00 $9,635.00 0 0
$14,773.0 $98,749.0
2010 $72,975.00 $32,640.00 $6,342.00 0 0
Source: Monroe County Office of Management& Budget, Dec. 2010.
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Table 32 - Impact Fee Revenue Projections, Detailed by Fund
® EEE=NMN=i
Roads $63,000.00 $63,000.00 $63,000.00 $63,000.00 $63,000.00 $315,000.00
Park and
Recreation $24,000.00 $24,000.00 $24,000.00 $24,000.00 $24,000.00 $120,000.00
Solid
Waste $7,000.00 $7,000.00 $7,000.00 $7,000.00 $7,000.00 $35,000.00
Police $15,000.00 $15,000.00 $15,000.00 $15,000.00 $15,000.00 $75,000.00
Library $20,000.00 $20,000.00 $20,000.00 $20,000.00 $20,000.00 $100,000.00
TOTALS $129,000.00 $129,000.00 1 $129,000.00 $129,000.00 $129,000.00 $645,000.00
Source: Monroe County Office of Management&Budget,Dec.2010.
C. Policy Framework
Policy 101.5.4 provides for 2 points in the ROGO system for payment to the Land
Acquisition Fund.
Objective 101.6 states that, "Monroe County shall expand the Monroe County Land
Authority acquisition program to provide for the purchase of land from property
owners who have not been awarded building permit allocations in the Permit
Allocation System."
Policy 101.6.1 states that, "Monroe County, the state, or other acquisition agency
shall, upon a property owner's request, purchase the property for fair market value
or permit the minimum reasonable economic use of the property."
Policy 101.6.2 states that by fiscal year 1998, the Monroe County Land Authority
shall dedicate a minimum of 35 percent of its annual budget each year for the
purpose of acquiring land from qualified property owners as defined by Policy
101.6.1. Funds accumulated from this source shall be reserved for the acquisition of
land from qualified property owners, but may also be used to acquire other
properties when deemed appropriate by the Land Authority.
Policy 101.6.3: By January 4, 1998, Monroe County shall identify potential funding
sources and seek funding from state, federal, and/or private sources to be used for
acquisition of land from qualified property owners as defined by Policy 101.6.1.
Policy 101.6.4: The County will coordinate with DCA to ensure that DCA continues
to support enhanced land acquisition efforts in the Keys based on needs identified in
this comprehensive plan. This coordination shall ensure continued support of state
acquisition efforts under CARL, Preservation 2000 and the Florida Communities
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Trust programs. The County encourages the Department to work at the state level to
create a dedicated acquisition fund for Tier 1 lands on Big Pine Key and No Name
Key based on the results of the Carrying Capacity Study, the requirements of the
incidental take permit and Habitat Conservation Plan and the Master Plan for Big
Pine Key and No Name Key. The County and the Department will also support
appropriate legislative changes which will have the effect of enhancing the Land
Authority efforts throughout the County, and the South Florida Water Management
District's acquisitions on Big Pine Key. Similarly, cooperation will continue with
private acquisition efforts, such as The Nature Conservancy and the Florida Land
and Sea Trust.
Policy 101.6.5: Monroe County, the state, or other acquisition agency shall pursue
land acquisition through voluntary purchase of lands from private property owners
denied a building permit through the Permit Allocation System, as the preferred
option for administrative relief pursuant to Policy 101.6.1, 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.
Objective 102.4: Monroe County in cooperation with the state and other
acquisition agencies shall prepare a Land Acquisition Master Plan by July 1, 2005
containing a strategy for securing funding, and a determination of those sources
considered appropriate for acquisition and management of conservation lands,
retirement of development rights and identification and purchase of sites for
affordable and employee housing and recreational purposes. Acquisition priorities
should be consistent with the tiered system adopted by this plan and as required by
the State Work Program in Policy 101.2.13 in order to identify lands appropriate for
voluntary purchase consistent with the comprehensive plan policies.
Objective 105.2: Monroe County shall implement with assistance of the state and
federal governments a 20-year Land Acquisition Program to: 1) secure for
conservation and passive recreation purposes remaining privately-owned
environmentally sensitive lands; 2) retire development rights on privately-owned
vacant lands to limit further sprawl and equitably balance the rights of property
owners with the long-term sustainability of the Keys man-made and natural
systems; and, 3) secure and retain lands suitable for affordable housing. This
objective recognizes the finite limits of the carrying capacity of the natural and man-
made systems in the Florida Keys to continually accommodate further development
and the need for the significant expansion of the public acquisition of vacant
developable lands and development rights to equitably balance the rights and
expectations of property owners.
Policy 105.2.1: Monroe County shall designate all lands outside of mainland
Monroe County, except for the Ocean Reef planned development, into three general
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categories for purposes of its Land Acquisition Program and smart growth
initiatives in accordance with the criteria in Policy 205.1.1. These three categories
are: Natural Area (Tier 1); Transition and Sprawl Reduction Area (Tier II) on Big
Pine Key and No Name Key only; and Infill Area (Tier III). The purposes, general
characteristics, and growth management approaches associated with each tier are
as follows:
1. Natural Area (Tier I): Any defined geographic area where all or a significant
portion of the land area is characterized as environmentally sensitive by the policies
of this Plan and applicable habitat conservation plan, is to be designated as a Natural
Area. New development on vacant land is to be severely restricted and privately
owned vacant lands are to be acquired or development rights retired for resource
conservation and passive recreation purposes. However, this does not preclude
provisions of infrastructure for existing development. Within the Natural Area
designation are typically found lands within the acquisition boundaries of federal
and state resource conservation and park areas, including isolated platted
subdivisions; and privately-owned vacant lands with sensitive environmental
features outside these acquisition areas.
2. Transition and Sprawl Reduction Area (Tier II): Any defined geographic area on
Big Pine Key and No Name Key, where scattered groups and fragments of
environmentally sensitive lands, as defined by this Plan, may be found and where
existing platted subdivisions are not predominately developed, not served by
complete infrastructure facilities, or not within close proximity to established
commercial areas, is to be designated as a Transition and Sprawl Reduction Area.
New development is to be discouraged and privately owned vacant lands acquired
or development rights retired to reduce sprawl, ensure that the Keys carrying
capacity is not exceeded, and prevent further encroachment on sensitive natural
resources. Within a Transition and Sprawl Reduction Area are typically found:
scattered small non-residential development and platted subdivisions with less than
50 percent of the lots developed; incomplete infrastructure in terms of paved roads,
potable water, or electricity; and scattered clusters of environmentally sensitive
lands, some of which are within or in close proximity to existing platted
subdivisions.
3. Infill Area (Tier III): Any defined geographic area, where a significant portion of
land area is not characterized as environmentally sensitive as defined by this Plan,
except for dispersed and isolated fragments of environmentally sensitive lands of
less than four acres in area, where existing platted subdivisions are substantially
developed, served by complete infrastructure facilities, and within close proximity
to established commercial areas, or where a concentration of non-residential uses
exists, is to be designated as an Infill Area. New development and redevelopment
are to be highly encouraged, except within tropical hardwood hammock or pineland
patches of an acre or more in area, where development is to be discouraged. Within
an Infill Area are typically found: platted subdivisions with 50 percent or more
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developed lots situated areas with few sensitive environmental features; full range
of available public infrastructure in terms of paved roads, potable water, and
electricity; and concentrations of commercial and other non-residential uses within
close proximity. In some Infill Areas, a mix of non-residential and high-density
residential uses (generally 8 units or more per acre) may also be found that form a
Community Center.
Policy 105.2.2: Monroe County shall prepare an overlay map(s) designating
geographic areas of the County as one of the three Tiers in accordance with the
guidance in Policy 105.2.1, which shall be incorporated as an overlay on the zoning
map(s) with supporting text amendments in the Land Development Regulations.
These maps are to be used to guide the Land Acquisition Program and the smart
growth initiatives in conjunction with the Livable CommuniKeys Program (Policy
101.20.1).
Policy 105.2.3: The priority for acquisition of lands and development rights under
the County's Land Acquisition Program shall be as follows: Tier I (Natural Area)-first
priority; Tier II (Transition and Sprawl Reduction Area) and patches of tropical
hardwood hammock or pinelands of one acre or greater in area within Tier III-
second priority; and Tier III (Infill Area)-third priority, except acquisition of land for
affordable housing shall also be a first priority. These acquisition priorities shall be
applied consistent with the Policy 105.2.10 that directs the focus of the County's
acquisition efforts to the acquisition or retirement of development rights of
privately owned vacant platted subdivision lots within Tiers I and II. Federal, state
and local funding will be used for purchasing privately owned vacant lands for
Tier 11.
Policy 105.2.4: Monroe County shall prepare a specific data base tied to its
Geographic Information System, containing information needed to implement,
monitor, and evaluate its Land Acquisition Program, smart growth initiatives, and
Livable CommuniKeys Program.
Policy 105.2.5: Monroe County shall, in coordination with federal and state
agencies, implement a land acquisition program to acquire all remaining privately-
owned vacant lands within areas designated as a Natural Area (Tier I).
Policy 105.2.14: Monroe County shall identify and secure possible local sources to
yield a steady source of funds and secure increased funding from state and federal,
and/or private sources for the Land Acquisition Program and the management and
restoration of acquired resource conservation lands. 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, it is recognized that the
Land Acquisition Program may extend well beyond 20 years.
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Policy 105.2.15: Where appropriate, as part of the Livable CommuniKeys Planning
Process, Community Centers shall be designated within areas designated as Tier III
(Infill Area).A Community Center is characterized as a defined geographic area with
a mix of retail, personal service, office and tourist and residential uses (generally of
greater than 8 units per acre). Community Centers shall be designated as receiving
areas for transfer of development rights and shall receive special incentives in the
non-residential permit allocation system.
Objective 105.3: Monroe County shall implement its 20-Year Land Acquisition
Program and smart growth initiatives in conjunction with its Livable CommuniKeys
Program and shall make appropriate amendments to this Plan and the Land
Development Regulations including, but not necessarily limited to the residential
and non-residential permit allocation systems.
Objective 204.4: By January 4, 1998, Monroe County shall establish a program for
acquiring high quality undisturbed salt marsh and buttonwood wetlands. (See
Future Land Use Objective 102.4 and related policies.)
Policy 204.4.1: The Monroe County Growth Management Division in coordination
with the Monroe County Land Authority and other federal and state agencies will
continue with wetlands acquisition through Florida Forever program, and other
funding mechanisms such as the Monroe County Land Acquisition Fund.
Objective 205.5: Monroe County, together with private, state, and federal agencies,
shall establish a program for acquiring native upland habitat to implement Goal 105
and the recommendations in the FKCCS. (See Future Land Use Objective 102.4 and
related policies).
Policy 205.5.1: The Monroe County Division of Growth Management shall work
cooperatively with the Monroe County Land Authority and other responsible state
and federal agencies in developing and administering the acquisition program.
Acquisition shall be undertaken to implement the Monroe County Land Acquisition
Master Plan (Objective 102.4).
Policy 207.12.2: Sites identified pursuant to Policy 207.12.1 shall be identified as
priority acquisition sites for conservation purposes. Particular emphasis shall be
placed upon acquisition of identified wetland and native upland sites which are
located within Improved Subdivisions. Acquisition shall be considered through the
Florida Forever program and other funding mechanisms such as the Monroe County
Land Acquisition Fund.
Policy 601.1.13: The Land Authority will coordinate with developers of affordable
housing projects when land acquisition proposals or donation requests are
submitted to the Land Authority. The Land Authority will acquire and donate land
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for projects if they are deemed appropriate and acceptable by the Land Authority as
meeting the intent of: 1. the affordable housing provisions in the Land Authority's
charter; 2. the goals, objectives and policies of this Plan; and 3. the land use
designations specified on the Future Land Use Map and in the Monroe County Land
Development Regulations.
Policy 601.1.14: The Land Authority shall not list or donate lands as potential
affordable housing sites if the lands exhibit any of the following characteristics: 1.
Any portion of the land lies within a known, probable, or potential threatened or
endangered species habitat, as specified on the most recent Protected Animal
Species Maps; or 2. Any portion of the land within the area to be cleared contains
Habitat Type/Habitat Quality Group 3 or 4, as specified in Policy 101.5.4, Section 6.
D. Strategies
• The County should consider conducting an impact fee study to determine if the
impact fee schedule should be modified.
• The County should explore new funding sources to assist in paying for its
capacity related to public facilities and services. This may include adopting new
revenue sources (e.g., road toll) and promoting business throughout the County
which will expand the tax revenue base.
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Issue Statement: Promote the development of affordable, attainable and senior
living housing that is well-planned, attractive and energy efficient.
A. Background: One of the most challenging issues facing Monroe County is
affordable housing. A few of the issues relating to affordable housing in the County
are the high cost of land; a limited number of affordable ROGO allocations; and
competition for a limited amount of subsidies. Affordable housing may be defined as
the ability of a household to purchase a home. As defined by the U.S. Department of
Housing and Urban Development(HUD), affordable housing is one in which cost does
not exceed 30 percent of a household's gross income. If the cost exceeds 30 percent of
the household's gross income, the household is considered to be cost burdened.
There are two major factors that define whether a dwelling unit is affordable:
household income and cost. Two primary affordable housing indicators are the
affordability index and the number of cost burdened households.
The affordability index measures the ability of the median income household in an
area to afford a median priced house. In addition to the median income and median
house price in an area, the index construction requires the current mortgage
interest rate, assumptions about the down payment required to purchase the
median price dwelling unit, and the maximum percentage of household income that
can be spent on housing. An index of 100 indicates the typical (median) family in
the area has sufficient income to purchase a single-family dwelling unit selling at the
median price.
The Shimberg Center of Affordable Housing Studies developed an affordability index
for all Florida counties in a 2004 study. Median house prices were calculated from
the Monroe County Property Appraiser datasets. Median household incomes come
from the 2000 decennial US Census. Although important, median sale prices in a
county or Metropolitan Statistical Area (MSAs) do not alone determine housing
affordability. A second important factor is the income of area residents. The highest
household incomes in Florida are generally in the coastal counties that also contain
many high priced housing units. However, median household incomes and single-
family house prices in an area are only moderately correlated, which can lead to
significant differences in housing affordability across counties and MSAs. According
to the Shimberg Center study, the County has the lowest affordability index with the
least affordable homes. However, the affordability index focuses only on the
average incomes and housing prices and does not consider the lowest income
householders that would typically rent.
Cost burden is another method of evaluating housing affordability and probably
more reliable because it accounts for all income including those that would buy and
those that would rent. As mentioned, a household that is cost burdened is one that
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is paying more than 30 percent of their gross income in housing cost (30 percent is
established by HUD as a parameter for an affordable home). Housing cost includes
taxes and insurance for owners and utility costs for owners and renters. The
Shimberg Study concluded that while 20 percent of owners in the State of Florida
are cost burdened, 41.6 percent of renters are cost burdened or paying more than
30 percent of their income towards housing cost.
B. Analysis: The infrastructure currently in place is adequate to meet the
projected population to meet the future needs of County functional population in an
effective, economical manner. With only 84 dwelling units anticipated each year
from 2010 to 2030, the supporting infrastructure will continue to be maintained to
provide the adopted level-of-service standards throughout the community. The
County does scheduled maintenance and repair of infrastructure facilities for which
it is responsible. The County will maintain an appropriate millage rate to pay for
services provided to residents. The County provides the same level, amount, and
quality of infrastructure to all residents in all areas without regard to income levels.
Each Livable CommuniKeys Plans includes objectives to maintain housing
opportunities for all segments of the population while maintaining the availability of
affordable housing and workforce housing for local residents, while preserving the
character of the community.
The County relies entirely on the private sector, supplemented by outside
government programs, to ensure the provision of adequate housing, while it does
not construct housing, it does provide incentives for development. According to the
Shimberg Center of Affordable Housing (SCAH), a minimum of 60 percent of the
permanent population will need affordable housing assistance or will be making
incomes at or below the 120 percent of the area median income. There is a need for
affordable housing for those permanent households that are making up to 120
percent of the area median income for renters and up to 160 percent of the area
median income for owners.
Currently, the County awards up to 20% of its allocations for affordable housing;
(up to 71 ROGO allocations) however, not all of them are being used due to the high
cost of land and time. Low-cost housing is difficult to provide; however, there are a
number of housing assistance programs available to the residents of the County,
including Section 8 and low interest loans; and the County participates in the
Community Development Block Grant program and the HOME Investment
Partnerships program. The County will, additionally, take the actions available (e.g.
residential density bonuses, waiver of fees) to encourage the development of very-
low, low, and moderate income housing,where the need for it is identified.
Monroe County Affordable Housing Defined: As defined in Sec 101-1, of the LDC,
affordable housing is considered to be one which:
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1) Meets all applicable requirements of HUD minimum property standards as to
room sizes, fixtures, landscaping and building materials, when not in conflict
with applicable laws of the county; and
2) Monthly rent, not including utilities, does not exceed 30 percent of that amount
which represents either 50 percent (very low income) or 80 percent (low
income) or 100 percent (median income) or 120 percent (moderate income) of
the monthly median adjusted household income for the County.
3) Affordable Rental Housing
• Very low income - a rental dwelling unit which monthly rent, not including
utilities, does not exceed 30 percent of the amount that represents 50
percent of the monthly median adjusted household income for the county.
• Low income- a rental dwelling unit which monthly rent, not including
utilities, does not exceed 30 percent of the amount that represents 80
percent of the monthly median adjusted household income for the county.
• Median income - a rental dwelling unit which monthly rent, not including
utilities, does not exceed 30 percent of the amount that represents 100
percent of the monthly adjusted median household income for the county.
• Moderate income - a rental dwelling unit which monthly rent, not including
utilities, does not exceed 30 percent of the amount that represents 120
percent of the monthly median adjusted household income for the county.
4) Owner Occupied Affordable Housing
• Very Low Income - a dwelling unit occupied only by a household whose total
household income does not exceed 50 percent of the median monthly
household income for the county.
• Low Income - a dwelling unit occupied only by a household whose total
household income does not exceed 80 percent of the median monthly
household income for the county.
• Median Income - a dwelling unit occupied only by a household whose total
household income does not exceed 100 percent of the median monthly
household income for the county.
• Moderate Income - a dwelling unit occupied only by a household whose total
household income does not exceed 160 percent of the median monthly
household income for the county.
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The County's low paying jobs in the service and tourism industry have failed to keep
up with the increasing housing cost even before the recession. Typically, according to
the Shimberg Study and HUD,the moderate income range for qualifying for affordable
housing assistance is 120 percent of the area median income; however, since the
housing prices in the County are disproportionately high, the County and the State
allows households making 160 percent of the area median income to qualify for
affordable housing assistance (House Bill 1363 Ch. 2006-69, s. 27, Laws of Fla.) for
home purchase.
Housing Value and Affordability: As seen in Table 33, the median value of specified
owner-occupied units, for the County as a whole, according to the 2000 Census, was
$241,200. This is an increase of nearly 60 percent from 1990. As seen in the
American Community Survey (ACS) for 2006-2008, the 2000 median house value
increased by 154 percent in 2008 ($613,900). According to the Shimberg Institute,
the average home sales price in 2009 declined to $572,607. The 2009 decline in
selling price reflects the economic recession.
Table 33 - Historic Median Housing Value for Monroe County
e
1970 $16,500 --
1980 $62,200 276.9%
1990 $151,200 143.1%
2000 $241,200 59.5%
2008 $613,900 154.5%
2009 EEE $572,607 -6.7%
Source: U.S. Census, 1970, 1980, 1990, 2000,American
Community Survey 2006-2008, and Shimberg Center for
2009 average home sales price.
According to HUD data,the County's area median income in 2010 was $68,400. Table
34 depicts the household income levels qualifying for affordable housing based on
assumed family size for households with a single income provider working 40 hours
for both renter and owner housing. This is the best available data and is provided by
the County Growth Management Division.
Table 34 - Qualifying Incomes for Single Income Provider (40 hours)
1 d d d d
Efficiency 1 Person $24,085 $38,535 $48,169 $57,803 $77,070
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1 2 Persons $27,581 $44,129 $55,161 $66,194 $88,258
bedroom
2 3 Persons $30,811 $49,297 $61,622 $73,946 $98,595
bedroom
3 4 Persons $34,200 $54,720 $68,40030 $82,080 $109,440
bedroom
Source: Monroe County Growth Management, 2010, MCLDC Sec 101-1
For a household comprised of adults related by marriage or domestic partnership
registered with the County, only the highest 60 hours of the combined employment
hours are counted, and considered to be 75 percent of the adjusted gross income.
The income of dependents regardless of age is not counted in calculating a
household's income (MCLDC Sec. 130.161). Income levels for domestic partnerships
are illustrated on Table 35 and are the best available data as provided by the
County Growth Management Division.
Table 35 - Qualifying Incomes for Married or Domestic Partnership Households
60 hours
MEN
1 d d d d
Efficiency 1 Person $32,112 $51,380 $64,225 $77,070 $102,760
1 2 Persons $36,774 $58,838 $73,548 $88,258 $117,677
bedroom
2 3 Persons $41,081 $65,729 $82,162 $98,594 $131,459
bedroom
3 4 Persons $45,600 $72,960 $91,200 $109,440 $145,920
bedroom
Source: Monroe County Growth Management,2010,MCLDC Sec. 130.161
To compute the monthly maximum rental rates, 30 percent of the household income
is divided by 12 (months). Table 36 illustrates the maximum rental rates by income
level in 2010 for single income providers.
Table 36 - Tenant Maximum Rental Rates for Single Income Provider
• MAN
MAM
EM :
d
Efficiency $602 $ 963 $1,204 $1,445
1 $646 $1,033 $1,292 $1,550
30 Area median income based on HUD.
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bedroom
2 $772 $1,235 $1,543 $1,852
bedroom
3 $883 $1,413 $1,766 $2,119
bedroom
4 $990 $1,584 $1,980 $2,376
bedroom
Source: Monroe County Growth Management,2010.
To compute the monthly maximum rental rates, 30 percent of the household income
is divided by 12 (months). Table 37 illustrates the maximum rental rates by income
level in 2010 for married or domestic partnership households.
Maximum selling price for an affordable housing unit based on the 2010 median
income of $68,400 is illustrated in Table 38. As defined by the MCLDC 101-01, the
maximum sales price, for an owner occupied affordable housing unit, means a price
not exceeding 3.75 times the annual median household income for the County for a
one bedroom or efficiency unit, 4.25 times the annual median household income for
the County for a two bedroom unit, and 4.75 times the annual median household
income for the County for a three or more bedroom unit.
Table 38 - Maximum Selling Price for Affordable Units in 2010
r
Efficiency/1 Bedroom 3.75 $256,500
2 Bedroom 4.25 $290,700
3 Bedroom 4.75 $324,900
Source: Monroe County Growth Management,2010.
For a median income households made up of two person income providers related by
marriage or domestic partnership, the income would be approximately $73,548. For
this household, it would be difficult to purchase a market rate home. Typically, the
ability to purchase a dwelling unit is calculated by the household income multiplied
by three. Therefore, the same household of two income providers would be able to
afford a $220,644 market rate home. However,the average market rate price in 2009
was recorded at$572,607. This is an affordability gap of$351,000 . Affordability gap
is calculated by subtracting the housing price ($572,607) by the purchase ability
($220,644).
If the same family were to be qualified to purchase an affordable dwelling unit, and
were to purchase efficiency or 1 bedroom apartment, the selling price would have to
be no greater than $275,806,applying the 3.75 multiplier as seen in Table 38.
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Owner Occupied Housing Value: The distribution of specified owner-occupied units
within the County and the median value trends are shown in Table 39 and are based
on unincorporated County data acquired an April 2010 from the Florida Housing Data
Clearinghouse (FHDC). The FHDC provides public access to data about housing in
Florida. Data for unincorporated County was acquired from the FHDC and is based
on 2000 Census data.
Table 39 - Distribution of Owner-Occupied Housing by Value, 2000
r e
® r
r r
<$50,000 31 0.4%
$50,000-$99,999 350 4.9%
$100,000- 1,240 17.2%
$149,999
$150,000- 1,470 20.4%
$199,999
$200,000- 1,874 26.0%
$299,999
$300,000- 1,447 20.1%
$499,999
$500,000- 495 6.9%
$999,999
>$1,000,000 291 4.0%
Total 7,198 100.0%
Source: Florida Housing Data Clearinghouse,April 2010
Note: Excluding mobile homes
The 2010 data in Table 39 indicates that less than one percent of units were valued
below $50,000 according to the Florida Housing Data Clearinghouse less than five
percent were valued below $99,999; approximately 94 percent of units were valued
at over $100,000. When comparing owner occupied housing value to the 2000
median value,there were 42.9 percent of the owner occupied housing that falls below
the median value ($241,200).
As a comparison,the distribution of specified owner-occupied units within the County
and the median value trends for 1990, are as reported in the "Housing Element"of the
Technical Document of the 2010 Monroe County Comprehensive Plan as adopted in
1995, are shown in Table 40. It is important to note that at the time the 1990 data
was collected, the City of Marathon and the Village of Islamorada were not
incorporated; therefore unincorporated 1990 totals will be higher when compared to
unincorporated 2000 totals.
Table 40 - Distribution of Owner-Occupied Housing by Value, 1990
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r e
® '
r 1 ® r
<$59,999 609 5.0%
$60,000-$99,999 2,441 20.2%
$100,000- 2,914 24.2%
$149,999
$150,000- 2,346 19.5%
$199,999
>$200,000 3,749 31.1%
Total 12,059 100.0%
Source: "Housing Element"of the Technical Document,
Table 7.5 of the 2010 Monroe County Comprehensive Plan
taken from the U.S.Census Bureau 1990.Note:This
excludes mobile homes.
Monthly Cost of Owner-Occupied Units: Table 41 and Table 42, presents the
distribution of specified owner-occupied housing cost in the County by mortgage
status and non-mortgage status for year 2000. According to the FDCH, in 2000,
about 57.1 percent of renters paid between $1,000 and $1,999 per month.
Only 8.7 percent of the owners with non-mortgage status paid more than $1,000 per
month. About 45.7 percent of non-mortgage status owners paid between $400 and
$699 per month.
It is important to mention that mortgage status and non-mortgage status are
collected from a 1-in-6 sample and weighted to represent the total population and
thus totals will not equal the 11,334 unit shown in Table 41.
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Table 41- Mortgage Status and Selected Monthly Owner Costs31
Unincorporated Monroe County, 2000
® r
r r
Less than $299 7 0.2%
$300 - $399 0 0.0%
$400 - $499 27 0.6%
$500 - $599 59 1.4%
$600 - $699 170 3.9%
$700 - $799 188 4.3%
$800 - $899 247 5.7%
$900 - $999 294 6.8%
$1,000 - $1,249 756 17.4%
$1,250 - $1,499 839 19.3%
$1,500 - $1,999 887 20.4%
$2000-$2499 373 8.6%
$2500-$2999 239 5.5%
$>$3000 253 5.8%
Tota132 4,3391 100.0%
Source: Florida Housing Data Clearinghouse,April 2010
As a comparison, the 1990 mortgage status and selected monthly owner costs for
Monroe County, are as reported in the "Housing Element" of the Technical Document
of the 2010 Monroe County Comprehensive Plan as adopted in 1995, are shown in
Table 43. It is important to note that at the time the 1990 data was collected,the City
of Marathon and the Village of Islamorada were not incorporated.
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31 Selected monthly owner costs,such as mortgage payments and utilities,are a measure of the cost
of homeownership.When combined with income,selected monthly owner costs offer an excellent
measure of affordability and excessive shelter costs.
32 Sample data or collected from a 1-in-6 sample and weighted to represent the total population.
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Table 42 - Mortgage Status and Selected Monthly Owner Costs Monroe County,
1990
® r
r r
Less than $299 188 2.8%
$300 - $399 189 2.9%
$400 - $499 288 4.3%
$500 - $599 414 6.3%
$600 - $699 615 9.3%
$700 - $799 553 8.4%
$800 - $899 587 8.9%
$900 - $999 640 9.7%
$1,000 - $1,249 1,174 17.8%
$1,250 - $1,499 688 10.4%
$1,500 - $1,999 540 8.2%
$2,000 or more 730 11.0%
Total 6,606 100.0%
Source:"Housing Element"of the Technical Document,Table
7.6 of the 2010 Monroe County Comprehensive Plan
Table 43 - Non Mortgaged Status and Selected Monthly Owner Costs,
Unincorporated Monroe County, 2000
® r
r r
<$100 23 0.8%
$100-$149 61 2.1%
$150-$199 90 3.1%
$200-$249 131 4.6%
$250-$299 138 4.8%
$300-$349 282 9.9%
$350-$399 254 8.9%
$400-$499 599 21.0%
$500-$599 411 14.4%
$600-$699 295 10.3%
$700-$799 173 6.1%
$800-$899 131 4.6%
$900-$999 23 0.8%
>$1,000 248 8.7%
Total 33 2,859 100.0%
Source: Florida Housing Data Clearinghouse,April 2010.
Rental Rates: The FHDC provides the distribution of units by contract rent. Contract
rent is the monthly rent agreed to, or contracted for, regardless of any furnishings,
33 Sample data or collected from a 1-in-6 sample and weighted to represent the total population. It
will not equate to the housing unit count in Table 7.5.
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utilities, or services that may be included. The distribution of specified renter-
occupied units is illustrated in Table 44.
Table 44 - Distribution of Renter Occupied Units by Contract Rent Range, 2000
<$200 68 1.5%
$200-$299 121 2.7%
$300-$499 456 10.3% 14.5%
$500-$749 1,159 26.1%
$750-$999 1,247 28.1%
$1,000-$1,499 841 18.9%
$1,500 or More 228 5.1%
No Cash Rent 325 7.3% 85.5%
Total 4,445 100.0% 100.0%
Source: Florida Housing Data Clearinghouse,April 2010.
As a comparison,the 1990 mortgage status and selected monthly owner costs for the
County, as reported in the "Housing Element" of the Technical Document component
of the 2010 Monroe County Comprehensive Plan adopted in 1995, are shown in Table
45. It is important to note that at the time the 1990 data was collected, the City of
Marathon and the Village of Islamorada were not incorporated. Therefore, 1990
numbers of units will be higher.
Table 45 - Distribution of Renter Occupied Units by Contract Rent Range, 1990
<$199 2,533* 20.2%
$200-$299 681 5.4%
$300-$499 3,323 26.4% 52.0%
$500-$699 3,559 28.3%
>$700 2,482 19.7% 48.0%
Total 12,578 100.0%
Source: "Housing Element"of the Technical Document,Table
7.7,2010 Monroe County Comprehensive Plan.
*includes No Cash Rent
As a comparison, it is evident from Table 44 and Table 45, that the percent
distribution of rental price below$500 has decreased by more than half from 1990 to
2000. In 1990 rental price below $500 distribution was 52.0 percent and 14.5
percent in 2000.
Rent-to-Income Ratios: According to the HUD, the threshold for affordable housing
is a rent-to-income ratio of 30 percent. In other words,when gross monthly housing
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cost exceeds 30 percent of monthly household income, the household is considered
to be paying too much for housing versus other essential living expenses. This is
known as a household that is cost burdened.
Based on the 30 percent cost burdened threshold,the general trend is that the lower
the household income range (less than $10,000 on Table 46), the higher the degree
of being cost burdened. 92 percent of households making an income below $10,000
are cost burdened. In the other spectrum, at the income range of$75,000 or more,
the rate of households that were cost burdened was only 6.3 percent. This trend is
consistent with the exception of income range $50,000 - $74,999, where all renter
households were cost burdened. Renter households, with annual incomes below
$34,999, accounted for 59 percent of total renter households, but represented 75
percent of households being cost burdened. Of the 3,310 renter household sample,
54.0 percent was cost burdened. These trends are depicted in Table 46.
Table 46 - Rent-to-Income for Renter-Occupied Units, 1999
1 1 1 1
a
/
< 29% 32 95 352 648 0 403
30 - 34.9% 0 28 115 100 46 27
>35% 378 594 356 107 29 0
Total 410 717 823 855 75 430
Not Computed 166 78 69 0 45 19
Percent Cast 92.2°1cr 86.8a/a 57'2'% 24.20% 1QQ:U% 6.3°/n
Burdened
Source: Florida Housing Data Clearinghouse accessed April 2010
As a comparison,the 1989 Rent-to Income for Renter-Occupied Units, are as reported
in the "Housing Element" of the Technical Document component of the 2010 Monroe
County Comprehensive Plan as adopted in 1995, are shown in Table 47. The trend of
the lower income being the most cost burdened when compared the 1999. However,
renters at the various income ranges were less cost burdened back in 1989. Of the
11,183 renter households in 1989, 47.0 percent was cost burdened. This represents a
five percent increase of cost-burdened renters in 1999. This restates the affordable
housing need.
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Table 47- Rent-to-Income for Renter-Occupied Units, 1989
1 111 1 111 111 1 111
/
< 29 % 210 489 2,070 1576 1,192
30 - 34.9% 81 319 474 121 34
35% or More 1,197 1,927 894 169 0
Total 1,488 2,735 3,438 1,866 1,226
Not Computed 1 340 1 361 1 681 233 195
Percent Cast 85.9%c, 82.1%cl 39.8% 15.50/4' '2.8%
Burdened
Source: "Housing Element"of the Technical Document,Table 7.8 of the 2010 Monroe County
Comprehensive Plan taken from the U.S.Census Bureau 1990.
Owner-to-Income Ratios: Based on the HUD threshold of households paying more
than 30 percent of their income as being cost burdened, the same trend is observed
for owners. Lower income owner occupied households (with incomes below
$10,000) were the most cost burdened at 92 percent. In contrast, at the $75,000 or
more income range, 11.4 percent of households were cost burdened. Owner
households with annual incomes below $34,999 accounted for 29 percent of total
owner occupied households, but represent 66 percent of households which were
cost burdened. 2,356 of the 7,412 owner households or 32 percent of the owner
households were cost burdened. Owner-to-income ratios are shown on Table 48.
Table 48 - Monthly Owner Cost by Income, 1999
1
< 29% 21 211 388 636 1,218 2,256
30 - 34.9% 0 7 74 87 183 94
35% or More 237 402 484 374 219 195
Total 258 946 946 1,097 1,620 2,545
Not Computed 112 0 0 0 0 0
Percent Cost 91.9% 66.0% 59.00/0 42.0% 24.8% 11.4%
Burdened
Source: Florida Housing Data Clearinghouse,April 2010
When comparing renter cost to income (Table 47) and owner cost to income (Table
48), it is evident that the lowest income households are the most cost burdened, more
so for renters. Also, all renters at the $50,000 - $74,999 income range are cost
burdened in comparison to only a quarter of those who own in that same income
range.
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Housing Delivery Programs: Below is a list of programs that deal with the provision
of subsidized and affordable housing.
Federal Programs:
• The Community Development Block Grant (CDBG): This program has been in
existence since 1974. The program is a significant source of funds for
affordable housing; however, this is not the sole focus of such grants. CDBG
funds can be used for a variety of community development initiatives,
including affordable housing construction, home repair assistance for existing
low-income homeowners, and economic development initiatives designed to
spur business investment and economic growth in distressed neighborhoods.
Funding is awarded according to a formula that attempts to quantify the
amount of need in a community compared with other communities, using
several economic and demographic measures. Communities receiving grants
are required to solicit and encourage citizen participation, particularly from
the proposed beneficiaries,in developing a final plan for using the funds.
• Home Investment Partnerships (HOME): This is a block grant program
administered by HUD designed to provide flexible funding support for
affordable low-income housing in the affordable housing solutions for low-
income families. HOME funds can be used to acquire and renovate
deteriorated properties or construct new housing for rent or sale. The funds
can also be used for down payment assistance grants to individual
homebuyers, as well as to other programs. The beneficiaries of HOME-funded
programs must have incomes below 80 percent of the HUD-determined area
median family income, and most uses of HOME funds have more specific
income guidelines. The flexibility of the HOME program is designed to
empower communities to find the best available uses for the money, and
requires significant interagency cooperation. HOME funds must be matched
with a 25%local contribution, which can take the form of cash from municipal
bond issues or donated labor and construction materials from the private
sector. Another form of local contribution can be vacant or abandoned
properties-donated by private donors or the county-which after HOME-funded
renovation and/or construction, would be sold to low-income homebuyers.
Additionally, jurisdictions receiving HOME funding are required to commit at
least 15 % of funding to projects which will be owned or developed by
experienced, local, community-based nonprofit organizations called
Community Housing Development Organizations (CHDOs) by HUD, but often
known as Community Development Corporations (CDCs). HOME-funded
housing is required to remain affordable for low-income residents for at least
5 to 20 years, depending on the type of project and proportion of funding
provided by HOME.
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• The American Dream Down Payment Initiative (ADDI): This is a corollary
program to HOME designed specifically to aid low-income first-time
homebuyers with funds for closing costs and a down payment. Families
meeting the criteria are eligible for up to $10,000 or 6 percent of the
purchase price (whichever is greater) of a home. Some of the funds may also
be used for remedying health hazards such as lead-based paint in the home
prior to occupancy. The ADDI program is administered in conjunction with
the HOME program, but allocations are figured separately, and different rules
apply.
• The Housing Opportunities for Persons with AIDS (HOPWA): This program
provides special housing assistance for low-income persons diagnosed with
HIV or AIDS. Assistance ranges from short-term rental assistance aimed at
preventing homelessness, to ongoing longer-term rental assistance, to the
acquisition, construction, and provision of supporting housing, which
provides integrated services for health care, mental health, chemical
dependency, and general case management. According to HUD, HOPWA
funds are an important catalyst for partnerships; on average, approximately
$2 is leveraged for every$1 provided by HOPWA. Baseline HOPWA funds are
awarded based on a statutory formula program, but additional funds are
available based on a competitive grant process awarding additional funds to
highly successful or innovative programs.
• The Emergency Shelter Grants (ESG): This program provides federal funding
for homeless shelters through HUD grants to local governments, which then
disburse the grant monies to local nonprofits. ESG funds are required to be
locally matched dollar for dollar. The matched funds are most likely to be
found in the form of private fundraising by the recipient nonprofit
organizations, but can also include other federal, State, and local grants as
well as in-kind donations of real estate and volunteer time. ESG funds are
also granted to State governments, but different rules apply.
• Federal Emergency Management Agency (FEMA): FEMA provides grants and
assistance programs to local governments, such as the Disaster-Specific
Assistance Program; Hazard-Related Grants and Assistance Programs, and
Non-Disaster Programs.
• Section 8 Voucher Program: Under the voucher program, individuals or
families with a voucher find and lease a unit (either in a specified complex or
in the private sector) and pay a portion of the rent (based on income, but
generally no more than 30 percent (40 percent being the maximum at time of
lease-up) of the family's income). A voucher may be either "project-based"
(where its use is limited to a specific apartment complex; public housing
agencies [PHAs] may reserve up to 2% of its vouchers) or "tenant-based"
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(where the tenant is free to choose a unit in the private sector, is not limited to
specific complexes).
Florida Program:
• State Housing Initiatives Partnership (SHIP): State housing initiatives
partnership SHIP is the first-and only-permanently funded, state housing
program in the nation to provide funds directly to local governments to
increase affordable housing opportunities in their communities. The
program channels 69 % of the documentary stamp tax revenues created by
the Sadowski Act directly to counties and entitlement cities in Florida on a
noncompetitive basis. Designed as an incentive for the formation of public-
private partnerships for building, rehabilitating and preserving affordable
housing, the SHIP program provides a financial means to develop and
implement housing programs that are locally designed.
• SHIP funds may be used to provide emergency repairs to very low, low and
moderate income households following a natural disaster as declared by the
President of the United States, Governor of the State of Florida or by the
Monroe County Board of County Commissioners. Funds can be used to
purchase emergency supplies to weatherproof damaged home; interim
repairs to avoid further damage; tree and debris removal required to make
the individual housing unit habitable; construction of wells or repair of
existing wells where public water is not available; post disaster assistance
with non-insured repairs; and soft costs required to process assistance
applications. The program is only implemented after a natural disaster.
• SHIP funds may be also used as part of the local contribution for programs
that construct multi-family special needs rental housing. The SHIP funds that
are used in these types of projects will be in the form of a deferred payment
loan for 15 years at a one percent to five percent interest rate, depending
upon cash flow of the project.
• State Apartment Incentive Loan (SAIL) Program: SAIL stimulates production
of affordable, multi- and single-family rental housing for very low-income
individuals and families in Florida. SAIL is a development incentive program,
which leverages State loan funds, local government contributions, developer
equity, and private bond financing. The State Apartment Incentive Loan
program (SAIL) provides low-interest loans on a competitive basis to
affordable housing developers each year. This money often serves to bridge
the gap between the development's primary financing and the total cost of
the development. SAIL dollars are available to individuals, public entities,
not-for-profit or for-profit organizations that propose the construction or
substantial rehabilitation of multifamily units affordable to very low income
individuals and families.
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• Florida Homeownership Assistance Program (HAP): Down payment
Assistance Loan Program: This helps individuals and families with low
incomes purchase their own homes by providing $2,500 at 0 percent
interest, non-amortizing, second mortgage loans for down payments and
closing costs. The following programs are provided under HAP:
• Permanent Loan Program - This provides 0 percent interest, non-
amortizing, second mortgage loans covering 25 percent of the
purchase price of a home. These loans assist qualified borrowers with
down payment/closing costs and reduce the principal on their first
mortgage.
• Construction Loan Program-A nonprofit developer or sponsor is
eligible to borrow the lesser of either the total funds available in an
application cycle, or 33 percent of the cost of the project to construct
or substantially rehabilitate a minimum of four homes. At least 30
percent of the units must be set aside for low-income borrowers and
30 percent for very low-income borrowers.
• Predevelopment Loan Program (PLP): This program provides financial
assistance for predevelopment costs, site acquisition, and development of
land for housing affordable to individuals or families with very low and low
incomes.
• Florida Affordable Housing Guarantee Program: This program provides
guarantees on taxable loans and tax-exempt loans to stimulate innovative,
private sector lending for multi- and single-family affordable housing.
• Low-Income Rental Housing Tax Credit (LIHTC) Program: This program
gives developers federal tax credits in exchange for acquisition and
substantial rehabilitation for substantially rehabilitating or for new
construction of rental housing projects for low or very low income rental
housing units must be set aside for individuals or families.
• Multi-Family Mortgage Revenue Bond Program: This program uses taxable
and tax-exempt bonds to provide below-market interest rate loans to non-
profits and for profits for developers of apartment units that set aside at least
20 percent of the units for households earning 50 percent or less of the AMI
or forty percent for households earning 60 percent of the AMI.
• Single-Family Mortgage Revenue Bonds (MRB) Program: This uses the
proceeds from mortgage revenue bonds from statewide qualified lending
institutions to offer below-market mortgage loans to first-time home buyers
with low, moderate and or middle incomes. (FAC Rule 67-25, F.A.C.)
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Monroe Coun1y Programs: There are various County agencies with a role in
affordable housing development;these are:
• Monroe County Planning and Environmental Resources Department: This
Department works with property owners to develop and preserve Affordable
Housing in unincorporated Monroe County. This department recommends
and provides comprehensive plan amendments and MCLDCs relating to
affordable housing.
• Monroe County Land Authority (MCLA): The MCLA is a land acquisition
agency created pursuant to Section 2-397 of the LDC, Section 380.0661 F.S. of
the Florida Statutes, and the Florida Keys and Key West Area of Critical State
Concern designations. The agency is empowered to acquire and dispose of
property for a range of public purposes, including recreation, affordable
housing, environmental protection, and the protection of private property
rights. As of September 30, 2009, the MCLA has expended $21 million on site
acquisition, $28.5 million for affordable housing(Source: MCLA).
• Monroe County Housing Authority: The Housing Authority is responsible for
low income and affordable rental apartments throughout the County, and
oversees the SHIP program which provides 2nd mortgages to income-qualified
home buyers.
As per the Monroe County Housing Authority, a variety of housing programs provide
for subsidized housing in unincorporated Monroe County. These programs include
State Apartment Incentive Loan Program (SAIL), Monroe County Land Authority
Program (MCLA), Low Income Tax Housing Tax Credit (LIHTC), Federal Emergency
Management Agency Program (FEMA) and other U.S. Housing and Community
Development programs (HUD).
A total of 470 dwelling units are subsidized by several programs in unincorporated
Monroe County,which are listed in Table 49 and 50. A total of 85 units are scheduled
to be built. All of the units and developments listed in this section are rental.
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Table 49 - Subsidized Housing Developments, 2010
1 ° rr r r
a r r
H. Bethel Apartments FEMA MCLA 18 Stock Island
Stock Island Apartments LIHTC SAIL 130 Stock Island
Meridian West LIHTC SAIL MCLA 102 Stock Island
Fla ler Village a LIHTC 49 Stock Island
Atlantic Pines LIHTC SAIL 14 Big Pine Key
Scattered Sites FEMA MCLA 5 Big Coppitt Key
Blue Water a LIHTC MCLA 36 Tavernier
New ort Villa e HUD 50 Key Largo
Tradewinds Hammocks LIHTC SAIL MCLA 66 Key Largo
Total 470 --
Source: Monroe County Housing Authority,2010
(a)To be built
FEMA-Federal Emergency Management Agency
MCLA-Monroe County Land Authority
LIHTC-Low Income Housing Tax Credit Program
SAIL-State Apartment Incentive Loan Program
HUD-U.S.Department of Housing and Urban Development
Section 8 federal funds are used to subsidize housing through cash vouchers in lieu of
rent payments, loan assistance programs, rental rehabilitation aid, and other general
assistance programs. A total of 143 dwelling units in the County are funded through
this program,as shown in Table 50.
Table 50 - Section 8 Subsidized Housing Developments, 2010
1 ° rr r r
a r r
Section 8 Choice Vouchers HUD 56 Lower Keys
Section 8 Choice Vouchers HUD 87 Upper Keys
Total 143 --
Source: Monroe County Housing Authority,2010
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Subsidized Housing and the Rate of Growth (ROGO) Process: The process of
receiving a building permit in the County is a competitive process. ROGO is a tool
utilized by the County to control growth throughout the Keys. However, additional
consideration is given to affordable housing permit applications. Each applicant
competes against the other applicants located within the same subarea. There is one
exception to this process, applicants for affordable housing. Affordable housing
applicants compete against all applicants for affordable housing permits keys wide.
Allocations are awarded each quarter in each subarea with the exception of Big Pine
Key and No Name Key where allocations are awarded annually.
Group Homes: The Florida Department of Children & Families licenses one group
home within the County. It is a Residential Child Caring Agency in Key West,
Florida,with a capacity of six children, ages 11 to 17.
Mobile Home Parks: The vast majority of mobile home parks are located on the
Municipalities. An account for both unincorporated and incorporated mobile home
parks as accessed through the Florida Department of Business and Professional
Regulation file name mhmailings.csv is provided in Table 51. A total of 1,378 units
are located in the mobile home parks in the count as a whole.
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Table 51 - Mobile Home Parks
r rr ° a
r r
Coco Palms Cud'oe Key 18
Ca tain ax RV Resort Key Largo 24
Largo Lively Inc Key Largo 58
Paradise Point Mobile Home Park Key Largo 15
Waters Edge Colony Mobile Home Park Stock Island 66
Sugarloaf Mobile Home Resort Sugar Loaf Key 22
Summerland Palms Trailer Park Summerland 22
Driftwood Trailer Park Tavernier 15
Total Unincor orated 240
r rr ° a
r r
Coconut Grove Mobile Home Park Key West 33
Island Life Village Key West 106
Liz's Trailer Park Key West 19
Poinciana Mobile Home Park Inc Key West 79
Stadium Mobile Home Park Key West 278
Sunset Harbor Manufactured Home Community Key West 86
Tropic Palms Mobile Home Park Key West 25
Galway Bay Mobile Home Park Marathon 70
jolly Roger Travel Park&Motel Marathon 88
Sundance Trailer Village & Efficiencies Marathon 35
Terra Marine Trailer Park Marathon 23
Trailerama Mobile Home Park Marathon 117
Ocean Breeze Park West Marathon 47
Grassy Key RV Park& Resort Grassy Ke 18
Peaceful Palms Islamorada 15
San Pedro Trailer Park Islamorada 14
Seabreeze Mobile Home Park Islamorada 35
Village Mobile Park Inc Islamorada 32
Windley Key Trailer Park Islamorada 18
Total Incorporated 1,138
Countywide Total 1,378
Source: Florida Department of Business and Professional Regulation file name mhmailings.csv
accessed through http://www.myfloridalicense.com/dbpr/sto/file download public-records-
CTMH.html on February 2011.
Note: Approved or acknowledged mobile home parks and owners.Terminated,rejected or
withdrawn projects are not included
As previously discussed the availability of affordable housing is one of the most
challenging issues in Florida and around the nation. There is resounding
documentation of the housing affordability problems the County is facing. As
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reported by the Monroe County Affordable and Workforce Housing Report, dated
November 2007,the County is the most cost burdened small-county in the nation and
has the most expensive single family homes and condominiums in the State.
According to a recent Harvard University Joint Center for Housing Studies, the
proportion of Americans spending more than half their incomes (severely cost
burdened) on housing increased from 12 percent in 2000 to 16 percent in 2008.
According to the Monroe County Affordable and Workforce Housing report, the County
has the highest affordability gap of all counties in Florida. The "affordability gap" is
the difference between the buying power of a median income household and the
median sales price of a single family home. The County's median income is $68,400
(HUDuser.org 2010); assuming a 40 hour per week, 50 week year, this translates into
an hourly salary of$34.20. Based on the 2010 median income, a one income earner
family would be able to afford a monthly payment of a mortgage or rent of$1,710 (no
more than 30 percent of income). A customary measure of how much home a family
can afford is the family income multiplied by three. Therefore, a household which
income is $68,400 would be able to afford a $205,200 priced dwelling unit. In
contrast, the median value in 2009 according to the Shimberg Center was $572,608.
This is an affordable gap of 370 thousand dollars.
The Monroe County Affordable and Workforce Housing report further states that 34.8
percent of home-owning Monroe County families are cost burdened, meaning they
pay 30 percent of their income for housing, exclusive of insurance and taxes. Of the
households that are cost burdened (34.8 percent), 17.4 percent of families are
severely cost burdened, meaning they pay more than 50 percent of their income for
housing. These trends exemplify the need to increase opportunities for affordable
housing options. With the market crash more houses have been foreclosed and more
permanent residents are moving out of the County with a population shift of
permanent residents to seasonal who are able to afford pricier homes.
The affordable housing need is assigned to the households making 0 to 120 percent of
the area median income for permanent population only. As a requirement for
receiving an affordable housing ROGO allocation, the residents occupying that
affordable unit must be permanent County residents. The following analysis looks at
affordable housing need by planning area only for the permanent residents.
Permanent Population Affordable Housing Need by Income Level: Based on the
SCAR,the number of households in the various income levels has been projected. The
tables below are meant for illustration of households in the various income groups to
determine the number of households that would need affordable housing assistance
or those that would be making 120 percent of the area median income or less. Tables
are not meant for estimating of future area median income. It is important to restate
that the estimated affordable housing need is correlated to the ROGO allocations and
permanent population. Therefore, permanent population is utilized in this analysis.
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Lower Keys: As shown in Table 52, an average of 5,545 households would need and
qualify for affordable housing assistance in the Lower Keys. Based on SCAH in 2010,
60.9 percent of households would qualify for affordable housing assistance. By the
year 2030 the percentage will increase to 62.4 percent. These percentages may be
understated since for owner occupied housing, the qualifying income in the County is
160 percent of the area median income. It is not possible to determine how many
households in the above moderate income range (incomes above 120 of the area
median income) would qualify. Some of the households that fall in the above
moderate income range may qualify for affordable housing, if they were owners.
Table 52 - Estimated Number of Households Needing Affordable Housing by
Income Level -Lower Keys Planning Area
Extremely 9,38.4 10.4% 988.5 10A% 1,016, 11.2% 1,020, 11.4% 1,023. 11.5%
Low 0 5 4
(0-30°%
AMI
Very'Lbw 1,034. 11.5% 982.4 10.8% 1,008; 11.2% 1,03,0. 11.5% 1,040. 11.7/0
(3 0,1750'0/0 9 3 6 8
AMI
Low 1,419. 15.7% 1,460. 16.0% 1,457. 16.1% 1,40. 16.2% 1,442. 163%0
Income 6 1 7 9 6
(5011-80,0/0
AMI
Moderate 2106. 23. % 2,129. 23.4% 4092. 23.2% 2,057. 23.0% 2,028, 22.9°fo
Income 7 S 3 2 0
(86,01-
�120%0
AMI
Above 3,535. 39.1% 3,558. 39.0% 3,461. 38.3% 3,394. 37.9% 3,337. 37.6%
Moderate 4 5 6 8 2
Income
(>120% of
AMI
HH s,499. 60.9%o 5,�560. 6L0% 5,574. 61.7%a 5,559, 6,2:M 5,534. 62.4%c,
needing 6 5 4 2 8
affordable
horsing
assistance
Source: Shimberg Center for Affordable Housing,2010; Fishkind&Associates,Inc.,2010,
Unincorporated Monroe County Population Projections
Note: Calculations are based on Shimberg Center for Affordable Housing percent allotment and
distribution of permanent population households.
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Middle Keys: As shown in Table 53, an average of 296 households would qualify for
affordable housing assistance in the Middle Keys. Based on SCAH in 2010, 60.9
percent of households would qualify for affordable housing assistance; by the year
2030, the percentage will increase to 62.4 percent. These percentages are
understated since for owner occupied housing, the qualifying income in the County is
160 percent of the area median income. It is not possible to determine how many
households in the above moderate income range
(Incomes above 120 percent of the area median income) would qualify. Some of the
households that fall in the above moderate income range may qualify for affordable
housing,if they were owners.
Table 53 - Estimated Number of Households Needing Affordable Housing by
Income Level -Middle Keys Planning Area
0 ITS ill
r 1 1 1 1 1 1 1 1
Extremely Low 50.1 10.4% 52.8 10.8% 54.2 112% 54:5 11.4%0 541,7 11:56/6.
(0-30%AMI);
Very Low 55.2 113% S2.5 10.8% 53.8 11:2% 55.0 11:56/0 55.6 11.7%
(30.1-50%
AMI)
Low incol 75.7 15.7% 7$.0 16.0% 77A 16.E% 77.5 16.2% 77.1 16:3%
(50.1-80%
AMI
Moderate 112.4 23.3%0 113.7 2 .4O/o 111.6 23.2%0 109.8 23.0%0 108.3 22.9a/o
Income (80.01-
120%AMI
Above 188.6 39.1% 190.0 39.0% 184.6 38.3% 181.2 37.9% 178.3 37.6%
Moderate
Income
(>120%of
AMI
HH needing 293.4 60.9% 297.0 6�1.0% 297.0 61:6°% 296.7 62..1% 295.6 62..4%
affordable
housfng
assistance
Source: Shimberg Center for Affordable Housing,2010; Fishkind&Associates,Inc.,2010,
Unincorporated
Monroe County Population Projections
Note: Calculations are based on Shimberg Center for Affordable Housing percent allotment and
distribution of permanent population households.
Upper Kew As shown in Table 54, an average of 4,026 households would qualify for
affordable housing assistance in the Upper Keys. Based on SCAH in 2010, 60.9
percent of households that would qualify for affordable housing assistance; by the
year 2030 the percentage will increase to 62.4 percent. These percentages are
understated since for owner occupied housing, the qualifying income in the County is
160 percent of the area median income. It is not possible to determine how many
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households in the above moderate income range (above 120 percent of the area
median income) would qualify. Some of the households that fall in the above
moderate income range may qualify for affordable housing, if they were owners.
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Table 54 - Estimated Number of Households Needing Affordable Housing by
Income Level -Upper Keys Planning Area
ri 1411 1 1 1 1 1 1 1
Extremely Low 681:2 10.4% 717,E 10.8%6 737,6 1120/o 740.8 11.4% 743.0 11.5%
0-30%o AMI
Very Low 7513 113% 713.2 10.8% 732.0 112%6 748.2 11.56/6 755.E 113%
(30.1-500/6 ,
AMI
Low tDcame 1030,6 15,76/6 1060.0 1�6.0% 1058.3 16.16/6 1053.3 16.2% 11,041,� 16A%
(50.1-80%a
AMI)
Moderate 1529.4 213%0 1545.9 23.4% 1519.0 23.2%6 1493A 23.0%6 1472.,3 22.9a/o
Income(80.01-
120%AMI
Above 2566.5 39.1% 2583.3 39.0% 2513.1 38.3% 2464.4 37.9% 2,422.7 37.6%
Moderate
Income
(>120%of
AMI
RH needing 89915 60.9% 41036.7 61:0% 4046.9 61.66/o 4035`,6 62.1%a 4,018.3 62..4/
affordable
housing
asslstance
Source:Shimberg Center for Affordable Housing,2010; Fishkind&Associates,Inc.,2010,
Unincorporated
Monroe County Population Projections
Note: Calculations are based on Shimberg Center for Affordable Housing percent allotment and
distribution of functional population households.
In essence, in year 2010 the number of household requiring affordable housing
assistance is 60.9 percent; by the year 2030 the percentage will increase to 62.4
percent,based on the SCAH.
Permanent Population Estimated Cost Burdened Households: As explained in the
"Price Rent Characteristics and Affordability" subsection of the Housing Element of the
Technical Document (July 2011), an indicator of affordable housing need is the
number of households that are cost burdened (paying more than 30 percent of their
income in housing cost) as established by HUD. In other words,when gross monthly
housing cost exceeds 30 percent of monthly household income, the household is
considered to be paying too much for housing versus other essential living expenses.
The households presented in this analysis pertain to permanent population given
that in order to qualify for affordable housing the occupants need to be permanent
residents. The percent allotment is derived from the SCAH. As seen in Table 55,the
cost burdened household is approximately 36 percent and are distributed as shown
below.
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Table 55 - Permanent Population Cost Burdened Households 2010-2030
Paying 30.01- 3,071 19.1% 3,050 18.8% 2,991 18.6% 2,932 18.4%R2,889P18.
50%
Paying 50+% 2,813 17.5% 2,839 17.5% 2,814 17.5% 2,772 17.4% 2,747 17.4%
Total Cost 5,884 36.6P/o 5,890 36.3% 5,805 36.1Q/o 5,704 35;8% 5,636 35.7i'/�
Burdened HH
Total HH 16,076 100.0% 16,225 100.0% 16,079 100.0% 15,933 '100.0%1 15,786 100.0%
Source: Shimberg Center for Affordable Housing,2010; Fishkind&Associates,Inc.,2010
Unincorporated Monroe County Population Projections
Note: Calculations are based on Shimberg Center for Affordable Housing percent allotment and
distribution of permanent population households.
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The following tables illustrate were cost burdened households are distributed in
relationship to the planning areas.
Lower Keys1 Of the households generated by permanent population in the LKPA, 36.6
percent are cost burdened according to SCAH. By the year 2030 the cost burdened
household decreases to 35.7 percent. The decrease may be due in part to a shift in
population from permanent to seasonal. A distribution of households paying more
than 30 percent of their income in housing is shown in Table 56.
Table 56 - Permanent Population Cost Burdened Households 2010-2030 -
Lower Keys Planning Area
Paying 30.01- 1,726 19.1% 1,713 18.80% 1,681 18.60% 1,648 18.401%1,P1,624 18.30%
50%
Paying 50+% 1,581 17.5% 1,595 17.50% 1,581 17.50% 1,558 17.40% 1,544 17.40%
Total,Cost, 3,307 3Z.6P/o 3,308 36.3%0 3,262: 3,206 3,167
Burdened HH
Total HH i 9,035 100.0% 9,113 100.0% 9,036 100.0% 8,954 100.0% 8,8721 100.0%
Source: Shimberg Center for Affordable Housing,2010; Fishkind&Associates,Inc.,2010,
Unincorporated
Monroe County Population Projections
Note: Calculations are based on Shimberg Center for Affordable Housing percent allotment and
distribution of permanent population households.
Middle Kew Of the households generated by permanent population in the MKPA
36.6 percent are cost burdened according to SCAH. By the year 2030 the cost
burdened household decreases to 35.7 percent. The decrease may be due in part to a
shift in population from permanent to seasonal. A distribution of households paying
more than 30 percent of their income in housing is shown in Table 57.
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Table 57 - Permanent Population Cost Burdened Households 2010-2030 -
Middle Keys Planning Area
Paying 30.01- 92 19.1% 92 18.80% 90 18.60% 88 18.401%1, 87 18.3011,
50%
Paying 50+% 84 17.5% 85 17.50% 84 17.50% 83 17.40% 82 17.40%
Total Cost 176 3&6% 177 36.3%0 174 36.1% 171 35.8% 169 35.7%
Burdened HH
Total HH i 482 100.0% 487 100.0% 482 100.0% 478 100.0% 4741 100.0%
Source: Shimberg Center for Affordable Housing,2010; Fishkind&Associates,Inc.,2010,
Unincorporated
Monroe County Population Projections
Note: Calculations are based on Shimberg Center for Affordable Housing percent allotment and
distribution of functional population households.
Upper Keys: Of the households generated by permanent population in the UKPA 36.6
percent are cost burdened according to SCAH. By the year 2030 the cost burdened
household decreases to 35.7 percent. The decrease may be due in part to a shift in
population from permanent to seasonal. A distribution of households paying more
than 30 percent of their income in housing is shown in Table 58.
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Table 58 - Permanent Population Cost Burdened Households 2010-2030 -
Upper Keys Planning Area
I .E.
Paying 30.01- 1,253 19.1% 1,245 18.80% 1,220 18.60% 1,196 18.40% P1118.30%
50%
Paying 50+% 1,148 17.5% 1,159 17.50% 1,148 17.50% 1,131 17.40% 1,121 17.40%
Total Cost 2,401 3&6% 2,,403 36.3%0 2,368 2,327 1�5.8% 2,299
Burdened HH
Total HH i 6,559 100.0% 6,620 100.0% 6,560 100.0% 6,500 100.0% 6,4411 100.0%
Source: Shimberg Center for Affordable Housing,2010; Fishkind&Associates,Inc.,2010,
Unincorporated
Monroe County Population Projections Note: Calculations are based on Shimberg Center for
Affordable Housing percent allotment and distribution of functional population households.
In summary, the County should seek to encourage affordable housing options for
households which are cost burdened. In year 2010, 36.6 percent of the households
are cost burdened.The trend slightly lowers in the year 2030.
Private Sector Provision of Housing: It is expected that all of the future housing
needs identified in this analysis can and will be met by the private sector. The
demand for homes on coastal lands makes construction of such homes economically
attractive to builders and developers.
A developer must first apply for a ROGO allocation in order to develop a dwelling
unit. Then the applicant must apply for a building permit. Of the total ROGO
allocations awarded, no less than 20 percent are assigned for affordable units. The
County can award up to 197 ROGO allocations a year including 71 for affordable
allocations. Between ROGO Years 1-17, an average of 222 ROGO allocations was
awarded each year. Of the allocations awarded, affordable housing awards
represent 25 percent of the total award.
An important component of provision of housing is the number that will be needed
for families that are cost burdened and in the qualifying incomes need affordable
housing. Since the affordable housing analysis indicates that there is a need for
affordability for 60 percent, at a minimum, developers should continue to receive
incentives for providing affordable housing.
Housing Supply bby Type: In order to obtain the estimated and projected household
by type, the percent allotment from the South Florida Regional Council 2008
estimates are used in combination with the number of functional dwelling units
projected. Additionally, the mobile home replacement for single family dwelling
units trend from 2001-2010 and as shown in Table 7.39, is integrated into the
projection. It is then estimated, that 311 mobile homes will be replaced by a single
family unit every five years.
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For the purpose of this analysis, the projected household numbers only reflects the
single family, multi-family and mobile homes (not to be confused with mobile home
parks) since:
• Section 163.3191, F.S. prohibits new mobile home parks in the Coastal High
Hazard Area; and
• Development of new hotel/motel units, campgrounds and recreational vehicle
spaces requires a residential ROGO allocation. The County has declared a
moratorium on the allocation of ROGO for these types of use. There is currently a
moratorium on ROGO designation for these units until December 31, 2011. The
County is contemplating extending the moratorium date.
Table 59 - Dwelling Units by Type, 2010-2030
1 1MENEM1 1 1 1 1 1
MEMMIOM , , , , MENEM
Single 22,92 0 23,59 0 24,20 0 24,80 0 25,41 0
Family1 62.5/o 9 63.5/0 1 64.4/0 5 65.3/0 0 66.2/o
Multi 8,178 22.3% 8,309 22.4% 8,412 22.4% 8,513 22.4% 8,614 22.5%
Famil
Mobile, 5,574 15.2% 5,263 14.2% 4,952 13.2% 4,641 12.2% 4,330 11.3%
Boat, RV
Total 36,67 100.0 37,17 100.0 37,56 100.0 37,96 100.0 38,35 100.0
4 % 2 % 6 % 0 % 4 %
Source: Fishkind&Associates,Inc.,2010,Unincorporated Monroe County Population Projections;
South
Florida Regional Planning Council 2008,Housing Type Projections for 2008; Monroe County Building
Department,2010,Mobile Home Replacement 2000-2009 data.
As seen in Table 59, above, there is a decreasing trend for mobile homes given the
mobile home replacements by single family homes. It is estimated that 311 mobile
homes are replaced for a single family structure every 5 years. There is a dichotomy
when it comes to addressing affordable housing issues. Although mobile homes are
being replaced by single family units, mobile homes offer a solution to providing
affordable housing. Then again, no new mobile home parks are allowed given the
County's CHHA designation
Projected Need by Cost: To determine the projected cost,the historic average median
incomes from 1999 to 2010 were assessed through HUD. It is estimated that the
average median income for the County will increase by 3.4 percent every year. This is
based strictly on historic area median income and does not take into consideration
market forces, market crash or current recession. Using the affordable housing cost
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spreadsheets generated by the County Growth Management Division, which calculate
affordable price by 30 percent of income, the affordable monthly rent are projected
for the planning horizon on Table 60.
Table 60 -Affordable Maximum Monthly Rental Rates per AMI projections
2015-2030
d ® ® d
r
Efficiency $712 $1,139 $1,423 $1,708
1 Bedroom $763 $1,221 $1,527 $1,832
2 Bedroom $912 $1,459 $1,824 $2,189
3 Bedroom $1,044 $1,670 $2,087 $2,505
4 Bedroom $1,170 $1,872 $2,340 $2,809
Efficiency $841 $1,346 $1,682 $2,019
1 Bedroom $902 $1,444 $1,804 $2,165
2 Bedroom $1,078 $1,725 $2,156 $2,587
3 Bedroom $1,234 $1,974 $2,467 $2,961
$1,383 $2,213 $2,766 $3,320
d • d d ���MMN
Efficiency $994 $1,591 $1,988 $2,386
1 Bedroom $1,066 $1,706 $2,133 $2,559
2 Bedroom $1,274 $2,039 $2,548 $3,058
3 Bedroom $1,458 $2,333 $2,916 $3,499
4 Bedroom $1,635 $2,616 $3,270 $3,924
Efficiency $1,175 $1,880 $2,350 $2,820
1 Bedroom $1,260 $2,017 $2,521 $3,025
2 Bedroom $1,506 $2,409 $3,012 $3,614
3 Bedroom $1,723 $2,757 $3,447 $4,136
4 Bedroom $1,932 $3,092 $3,865 $4,638
Source:www.HUDuser.org for estimating AML Monroe County Growth Management,
2010,AFH matrix future costxls,for cost calculations.
As seen in Table 61 the affordable selling prices are projected for the County. As
defined by MCLDC 101-01 the maximum sales price, owner occupied affordable
housing unit, means a price not exceeding 3.75 times the annual median household
income for the county for a one bedroom or efficiency unit, 4.25 times the annual
median household income for the county for a two bedroom unit, and 4.75 times the
annual median household income for the county for a three or more bedroom unit.
Table 61 -Affordable Maximum Selling Price 2015-2030
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d ® ® d
•
Efficienc 1 Bedroom 3.75 $303,173
2 Bedroom 4.25 $343,596
3 Bedroom 4.75 $384,019
Efficiency/1 Bedroom 3.75 $358,339
2 Bedroom 4.25 $406,117
3 Bedroom 4.75 $453,896
d • d d
Efficiency/1 Bedroom 3.75 $423,540
2 Bedroom 4.25 $480,012
3 Bedroom 4.75 $536,484
Efficiency/1 Bedroom 3.75 $500,610
2 Bedroom 4.25 $567,358
3 Bedroom 4.75 $634,106
Source: www.HUDuser.org for estimating AML Monroe County Growth Management,
2010,AFH matrix future costxls,for cost calculations.
Projected Need by Income Range: Income ranges are discussed in Section 7.3.4
"Projected Number of Households by Income" of the Technical Document (July 2011)
and the analysis is based on SCAH data. Analysis was done two ways, for functional
population and permanent population. Permanent population was analyzed separate
since it is permanent population who would receive affordable housing assistance. In
summary, at least 60.9 percent of households in 2010 will be at or below the
moderate income range (80.01 to 120 percent of the area median income). By the
year 2030, the number of households at or below the moderate income range will be
at 62.4 percent.
Rental vs. Home Ownership: Due to the high cost of land and limited subsidies
available, the County should focus its affordable housing efforts toward encouraging
the development of rental housing over home ownership. It is evident that renters
are in more need of affordable housing assistance.
Locations for Affordable/Workforce Housing_ The provision of adequate land for
affordable housing is stated in "Land Requirements for Housing Need" of the
Technical Document. In summary, there is a surplus of acreage in Tier III (infill
areas) that would allow for the needed affordable housing.
Given that mobile homes provide an affordable option, the County may want to
consider continuing providing the land sites where mobile home development is
located and determine if this is a financially feasible option.
C. Policy Framework:
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GOAL 601: Monroe County shall adopt programs and policies to facilitate access by
all current and future residents to adequate and affordable housing that is safe,
decent, and structurally sound, and that meets the needs of the population based on
type, tenure characteristics, unit size and individual preferences.
Objective 601.1: By January 4, 1998, Monroe County shall complete initial
implementation of the following defined policies, including establishment of a
structured monitoring program, to reduce by 50% the current estimated affordable
housing need for households in the very low and low income classifications (HUD
definitions) 2002.
Policy 601.1.1: Within one year of the effective date of this Plan, Monroe County
shall complete an assessment of affordable and special housing needs utilizing
detailed housing data from the 1990 U.S. Census and an assessment of target areas
and population segments representing priority affordable housing needs as a basis
for establishing specific quantifiable near and long-term affordable housing
programs. Results of the assessment shall be used to update the Comprehensive
Plan's affordable housing policies.
Policy 601.1.2: By January 4, 1997, Monroe County shall adopt Land Development
Regulations which establish a point system in conjunction with the permit allocation
system for apportioning future development on an annual basis. The point system
shall assign a positive point rating to affordable housing projects.
Policy 601.1.3: In conjunction with the Monroe County Housing Authority, assign
Housing planning responsibilities within the County Planning Department by
January 4, 1998. Examples of the Housing planning duties would include providing
informational and technical assistance to the public on affordable housing programs,
completing housing inventories and assessments, working to increase local
utilization of state and federal funding programs, coordinating redevelopment plans,
and serving as a liaison to the Monroe County Housing Authority. The County shall
develop a Comprehensive Housing Affordability Strategy (CHAS) through the
Planning Department in compliance with U.S. HUD guidelines in conjunction with
the State of Florida CHAS, no later than January 1997.
Policy 601.1.4: Expand the County's participation in Federal and State housing
assistance programs to rehabilitate owner and rental housing for low and moderate
income residents by seeking grants, loans, and technical assistance in conjunction
with the Monroe County Housing Authority by January 4, 1998.
Policy 601.1.5: By January 4, 1998, Monroe County shall define programs to
maximize opportunities for private sector involvement in the formation of
community-based non-profit organizations to actively participate in the provision of
low and moderate income affordable housing.
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Policy 601.1.6: By the effective date of this Plan, the Monroe County Land Authority
shall compile a list of buildable properties owned or targeted for acquisition by the
Land Authority which potentially could be donated or made available for affordable
housing. This list will be updated annually and made available to the public. The
guidelines established in Policies 601.1.13 and 601.1.14 shall be considered in the
formulation of this list.
Policy 601.1.7: All affordable housing projects which receive development benefits
from Monroe County, including but not limited to affordable housing points in the
Permit Allocation System and donations of land, shall be required to maintain the
project as affordable on a long-term basis pursuant to deed restrictions or other
mechanisms specified in the Land Development Regulations, and administered by
Monroe County or the Monroe County Housing Authority. For the purposes of
developing such Land Development Regulations, the following guidelines shall
apply: "Moderate Income" is the amount which represents one hundred-twenty
percent (120%) of the median annual household income for Monroe County. "Low
Income"is the amount which represents eighty percent(80%) of the median annual
household income for Monroe County. "Very Low Income" is the amount which
represents fifty percent (50%) of the median annual household income for Monroe
County. "Cost-burdened" describes a household which pays a monthly rent or
monthly mortgage payment, including taxes and insurance that exceeds thirty
percent(30%) of the median annual household income for Monroe County.
Policy 601.1.8: If Monroe County funding, or if County-donated land is to be used
for any affordable housing project, alternative sites shall be assessed according to
the following guidelines: 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. 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.
Policy 601.1.9: The County Growth Management Division and the County Housing
Authority shall identify funding sources that could be made available to support
community-based non-profit organizations such as Habitat for Humanity in their
efforts to provide adequate housing at a cost affordable to low-income residents.
Policy 601.1.10: The County shall strive to participate in the State Housing
Incentives Partnership program as specified in the 1992 William Sadowski
Affordable Housing Act. By January 4, 1997 Monroe County will adopt a Local
Housing Assistance Ordinance which establishes a local housing partnership; a local
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housing trust fund; administrative responsibilities; and a Local Housing Advisory
Committee. Thereafter, the County shall write and implement a Local Housing
Assistance Plan and a Local Housing Incentives Plan as specified in the Act.
Policy 601.1.11: By the effective date of this Plan, Monroe County shall adopt Land
Development Regulations which provide that twenty percent (20%) of residential
building permits will be reserved for single or multi-family affordable housing. (See
Technical Document, Section 7.2.1 and Future Land Use Policy 101.2.4) Affordable
housing eligible for this separate allocation must meet the criteria established in the
Land Development Regulations.
Policy 601.1.12: By January 4, 1997, Monroe County shall adopt Land Development
Regulations which may include density bonuses, impact fee waiver programs, and
other possible regulations to encourage affordable housing.
Policy 601.1.13: The Land Authority will coordinate with developers of affordable
housing projects when land acquisition proposals or donation requests are
submitted to the Land Authority. The Land Authority will acquire and donate land
for projects if they are deemed appropriate and acceptable by the Land Authority as
meeting the intent of: 1. the affordable housing provisions in the Land Authority's
charter; 2. the goals, objectives and policies of this Plan; and 3. the land use
designations specified on the Future Land Use Map and in the Monroe County Land
Development Regulations.
Policy 601.1.14: The Land Authority shall not list or donate lands as potential
affordable housing sites if the lands exhibit any of the following characteristics: 1.
Any portion of the land lies within a known, probable, or potential threatened or
endangered species habitat, as specified on the most recent Protected Animal
Species Maps; or 2. Any portion of the land within the area to be cleared contains
Habitat Type/Habitat Quality Group 3 or 4, as specified in Policy 101.5.4, Section 6.
Policy 601.1.15: Monroe County shall annually monitor the eligibility of the
occupants of housing units which have received special benefits, including but not
limited to those issued under the affordable housing provisions specified in the
Land Development Regulations or those issued through the Permit Allocation
System. If occupants no longer meet the eligibility criteria specified in Policy
601.1.11 and in the Land Development Regulations, and their eligibility period has
not expired, then Monroe County may take any one or a combination of the
following actions: 1. require the payment of impact fees, if they were waived; 2.
proceed with remedial actions through the Department of Code Enforcement, as a
violation of the Monroe County Code; 3. take civil court action as authorized by
statute, common law, or via agreement between an applicant and the County;
and/or 4. require the sale or rental of the unit(s) to eligible occupants.
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GOAL 601: Monroe County shall adopt programs and policies to facilitate access by
all current and future residents to adequate and affordable housing that is safe,
decent, and structurally sound, and that meets the needs of the population based on
type, tenure characteristics, unit size and individual preferences. [9J-5.010(3)(a)]
Objective 601.1: By January 4, 1998, Monroe County shall complete initial
implementation of the following defined policies, including establishment of a
structured monitoring program, to reduce by 50% the current estimated affordable
housing need for households in the very low and low income classifications (HUD
definitions) 2002. [9J-5.010(3)(b)1 and 3]
Policy 601.1.1: Within one year of the effective date of this Plan, Monroe County
shall complete an assessment of affordable and special housing needs utilizing
detailed housing data from the 1990 U.S. Census and an assessment of target areas
and population segments representing priority affordable housing needs as a basis
for establishing specific quantifiable near and long-term affordable housing
programs. Results of the assessment shall be used to update the Comprehensive
Plan's affordable housing policies.
Policy 601.1.2: By January 4, 1997, Monroe County shall adopt Land Development
Regulations which establish a point system in conjunction with the permit allocation
system for apportioning future development on an annual basis. The point system
shall assign a positive point rating to affordable housing projects.
Policy 601.1.3: In conjunction with the Monroe County Housing Authority, assign
Housing planning responsibilities within the County Planning Department by
January 4, 1998. Examples of the Housing planning duties would include providing
informational and technical assistance to the public on affordable housing programs,
completing housing inventories and assessments, working to increase local
utilization of state and federal funding programs, coordinating redevelopment plans,
and serving as a liaison to the Monroe County Housing Authority. The County shall
develop a Comprehensive Housing Affordability Strategy (CHAS) through the
Planning Department in compliance with U.S. HUD guidelines in conjunction with
the State of Florida CHAS, no later than January 1997.
Policy 601.1.4: Expand the County's participation in Federal and State housing
assistance programs to rehabilitate owner and rental housing for low and moderate
income residents by seeking grants, loans, and technical assistance in conjunction
with the Monroe County Housing Authority by January 4, 1998. [9J-5.010(3)(c)7]
Policy 601.1.5: By January 4, 1998, Monroe County shall define programs to
maximize opportunities for private sector involvement in the formation of
community-based non-profit organizations to actively participate in the provision of
low and moderate income affordable housing. [9J-5.010(3)(c)1]
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Policy 601.1.6: By the effective date of this Plan, the Monroe County Land Authority
shall compile a list of buildable properties owned or targeted for acquisition by the
Land Authority which potentially could be donated or made available for affordable
housing. This list will be updated annually and made available to the public. The
guidelines established in Policies 601.1.13 and 601.1.14 shall be considered in the
formulation of this list. [9J-5.010(3)(b)1, 3 & 5]
Policy 601.1.7: All affordable housing projects which receive development benefits
from Monroe County, including but not limited to affordable housing points in the
Permit Allocation System and donations of land, shall be required to maintain the
project as affordable on a long-term basis pursuant to deed restrictions or other
mechanisms specified in the Land Development Regulations, and administered by
Monroe County or the Monroe County Housing Authority. For the purposes of
developing such Land Development Regulations, the following guidelines shall
apply: "Moderate Income" is the amount which represents one hundred-twenty
percent (120%) of the median annual household income for Monroe County. "Low
Income"is the amount which represents eighty percent(80%) of the median annual
household income for Monroe County. "Very Low Income" is the amount which
represents fifty percent (50%) of the median annual household income for Monroe
County. "Cost-burdened" describes a household which pays a monthly rent or
monthly mortgage payment, including taxes and insurance that exceeds thirty
percent(30%) of the median annual household income for Monroe County.
Policy 601.1.8: If Monroe County funding, or if County-donated land is to be used
for any affordable housing project, alternative sites shall be assessed according to
the following guidelines: 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; 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. [9J-
5.010(3)(c)(5)]
Policy 601.1.9: The County Growth Management Division and the County Housing
Authority shall identify funding sources that could be made available to support
community-based non-profit organizations such as Habitat for Humanity in their
efforts to provide adequate housing at a cost affordable to low-income residents.
[9J-5.010(3)(c)1]
Policy 601.1.10: The County shall strive to participate in the State Housing
Incentives Partnership program as specified in the 1992 William Sadowski
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Affordable Housing Act. By January 4, 1997 Monroe County will adopt a Local
Housing Assistance Ordinance which establishes a local housing partnership; a local
housing trust fund; administrative responsibilities; and a Local Housing Advisory
Committee. Thereafter, the County shall write and implement a Local Housing
Assistance Plan and a Local Housing Incentives Plan as specified in the Act.
Policy 601.1.11: By the effective date of this Plan, Monroe County shall adopt Land
Development Regulations which provide that twenty percent (20%) of residential
building permits will be reserved for single or multi-family affordable housing. (See
Technical Document, Section 7.2.1 and Future Land Use Policy 101.2.4) Affordable
housing eligible for this separate allocation must meet the criteria established in the
Land Development Regulations. [9J-5.010(3)(c)5]
Policy 601.1.12: By January 4, 1997, Monroe County shall adopt Land Development
Regulations which may include density bonuses, impact fee waiver programs, and
other possible regulations to encourage affordable housing.
Policy 601.1.13: The Land Authority will coordinate with developers of affordable
housing projects when land acquisition proposals or donation requests are
submitted to the Land Authority. The Land Authority will acquire and donate land
for projects if they are deemed appropriate and acceptable by the Land Authority as
meeting the intent of: 1. the affordable housing provisions in the Land Authority's
charter; 2. the goals, objectives and policies of this Plan; and 3. the land use
designations specified on the Future Land Use Map and in the Monroe County Land
Development Regulations.
Policy 601.1.14: The Land Authority shall not list or donate lands as potential
affordable housing sites if the lands exhibit any of the following characteristics: 1.
Any portion of the land lies within a known, probable, or potential threatened or
endangered species habitat, as specified on the most recent Protected Animal
Species Maps; or 2. Any portion of the land within the area to be cleared contains
Habitat Type/Habitat Quality Group 3 or 4, as specified in Policy 101.5.4, Section 6.
Policy 601.1.15: Monroe County shall annually monitor the eligibility of the
occupants of housing units which have received special benefits, including but not
limited to those issued under the affordable housing provisions specified in the
Land Development Regulations or those issued through the Permit Allocation
System. If occupants no longer meet the eligibility criteria specified in Policy
601.1.11 and in the Land Development Regulations, and their eligibility period has
not expired, then Monroe County may take any one or a combination of the
following actions: 1. require the payment of impact fees, if they were waived; 2.
proceed with remedial actions through the Department of Code Enforcement, as a
violation of the Monroe County Code; 3. take civil court action as authorized by
statute, common law, or via agreement between an applicant and the County;
and/or 4. require the sale or rental of the unit(s) to eligible occupants.
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Policy 1301.5.5: The Growth Management Division shall work with the County
Housing Authority to encourage development of elderly and institutional housing
and identify funding sources for community-based non-profit organizations to
provide affordable housing for low-income residents.
D. Strategies
• The County should consider mapping the locations of all existing deed restricted
affordable housing units, including mobile home and RV parks and targeting
these areas for retention and expansion programs.
• The County should consider continuing implementing the Affordable Housing
ordinance.
• The County may consider increasing the affordable housing ROGO allocation
ratio from 20 percent or other similar incentives such as increased allocations
for affordable units constructed to energy efficiency or "green" building
standards.
• County should consider transferring the qualifying of the affordable housing
applicants to the MC Housing Authority
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VIII. Public Involvement/Information
Issue Statement: Promote robust public involvement and information sharing
regarding land use issues throughout the planning and development process.
A. Background: The Plan is designed to actively engage and maximize
participation by the County residents, business owners, interest groups, and
community groups in shaping the Plan, as guided and regulated by Chapter 163, F.S.
The County has a rich history of public interest and involvement in growth
management issues that has shaped the approach to development and use of land
within the County, as seen in programs such as the Livable CommuniKeys.
Continued public involvement and input in land use issues is of utmost importance
to the citizens of the County.
B. Analysis: The County has established though the Plan, the MCLDC, and by
other means, a healthy public involvement process to allow the public to gain
information,view existing and proposed documents and plans, and provide input on
land use and development matters. Much of the County is guided by the Livable
CommuniKeys Program, which began in 1997. The individualized Livable
CommuniKeys Plans for the various areas of the County acknowledge the distinctive
nature of the planning areas and takes into consideration the needs and desires of
each community through the extensive public involvement that took place to create
each LCP.
As proposed land use and development/redevelopment related applications are
submitted to the County, the public involvement process begins early. For proposed
changes to the land use district maps and future land use maps, property owner's
that are located within a 300 foot radius of the affected property receive written
notice by mail informing them of the subject application and scheduled public
hearing dates,time and location.
One of the first meetings that occurs when a development application, text and/or
map amendment application is submitted to the County is a Development Review
Committee meeting. The DRC meets at least twice a month and their duties are to
review all applications for development approval and report its recommendations
to the Planning Commission, Planning Director and/or the Board of County
Commissioners. A staff report is prepared for each application and provisions are
established in the MCLDC that allow "public comments by members not in the
Department of Planning may be in writing and delivered to the Development Review
Committee, the Planning Director, and communicated to the applicant". [Section 102-
21 (c) (2) e.] The DRC maintains minutes and records as required by State law.
Regulations are also established in the MCLDC for all public hearings for
development applications, text or map amendments, to be advertised in a local
newspaper and signs posted on the subject property 15 days prior to the public
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hearing to notify the public. All public hearings and notices are also posted on the
County's website to keep the public informed, as required by the MCLDC. The
MCLDC also contains provisions for rights of all persons and states: "any person may
appear at a public hearing and submit evidence, either individual or as a
representative of an organization. . ." [Section 110-6(c)(2)]. In addition, the County
provides information of all upcoming public hearings on their local television
Channel 76.
C. Policy Framework: The Monroe County 2010 Comprehensive Plan contains
Section 5.0 Monitoring and Evaluation Procedures, which includes the following
pertaining to public involvement:
Citizen Participation in the Planning Process (5.5)
The Monroe County Planning Commission(PC) and Board of County Commission
(BOCC) shall hold advertised public hearings on all matters relating to the
monitoring, evaluation, implementation, and amending of the Comprehensive
Plan. The purpose of these public hearings will be to encourage public
participation in the comprehensive planning process and to inform real property
owners and the general public of actions which may affect the use of their
property. The procedures described in 5.1 through 5.4 above include several
opportunities for citizen participation in the planning process. These
opportunities include:
1. Annual BOCC public hearing(s) to review the Plan Implementation Report
and adopt the Annual Operating Budget;
2. Annual BOCC public hearing(s) to review and adopt the Concurrency
Management Report and the Five-Year Capital Improvement Program;
3. Planning Commission public hearing(s) (at least every five years) to review
the EAR and transmit recommendations to the BOCC; and
4. BOCC public hearing(s) to review and adopt the EAR.
To the extent that any of BOCC public hearings serve to amend or update the
Comprehensive Plan, the requirements of Chapter 163.3184(15)(b) will be
followed (See 5.5.1 below). At each of these public hearings, citizens will be
afforded the opportunity to submit verbal and written comments.
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Notification (5.5.2)
Monroe County will assure that the general public and real property owners are
notified of all official actions which may affect the use of their property,
including:
1. all BOCC and Planning Commission public hearings related to the monitoring,
evaluation, and implementation of the Comprehensive Plan and the adoption
of any amendments to the Monroe County Year 2010 Comprehensive Plan;
and
2. any additional public meetings or workshops related to comprehensive
planning process.
Monroe County shall notify the general public and real property owners through
the publication of a notice in a newspaper of general circulation in the area,
consistent with established Monroe County notification procedures.
Dissemination of Materials (5.5.3)
Consistent with current practices, Monroe County shall continue to provide all
materials prepared during the comprehensive planning process and to be
discussed at Planning Commission and BOCC public hearings to the general
public. These materials will be available for public inspection at established
locations throughout the Upper, Middle and Lower Keys, including public
libraries and government centers.
The following GOPs pertain to public input and/or involvement:
Policy 101.20.1: Monroe County shall develop a series of Community Master Plans.
Master Plans will be developed in accordance with the following principles: (Note 1.
- 4. are not related here) S. Each Community Master Plan will include appropriate
mechanisms allowing citizens continued oversight and involvement in the
implementation of their plans. Through the Community Master Plans, programs for
ongoing public involvement, outreach, and education will be developed.
Policy 102.4.3: The Land Authority and Growth Management Division shall develop
a priority list of acquisition sites. This list shall be updated annually with public
input. In formulating this list, the County shall prioritize Tier I lands over Tier II
(Big Pine Key and No Name Key) and Tier III lands. Outside the boundaries of Tier I,
land with fragmented hammocks or pinelands of greater than one-acre in area and
wetlands identified in Policy 102.4.2, 2 shall be the second highest priority for
acquisition. Acquisition of 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 shall also be a top priority.
Policy 205.5.2: A list of priority native upland habitat acquisition sites in Tier I shall
be drafted and reviewed annually with public input taken.. This list shall be
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developed by Monroe County in consultation with representatives of FDEP, FDCA,
USFWS, SFWMD, FWC and others as appropriate.
Policy 1201.10.2: The preparation of the Parks and Recreation Plan will include a
public participation program in order to determine the demand for recreation areas
and facilities.
GOAL 1303: Monroe County shall increase the involvement of the citizens of the
County and government related entities that operate within the County in the
comprehensive planning and growth management process.
Objective 1303.1: Monroe County shall provide for and facilitate public
participation and awareness in the comprehensive planning process.
Policy 1303.1.1: Monroe County shall continue to utilize an information exchange
program, including the full utilization of an updated mailing list, to provide for the
communication of issues in summary form between the County and all interested
parties.
Policy 1303.1.2: Monroe County shall develop public awareness of the
Comprehensive Plan by providing for public education programs designed to
promote a widespread understanding of the Plan's purpose and intent.
D. Strategies
• The County has adequate public involvement provisions established.
• The County may want to consider the addition of a community meeting
requirement for land development applications that would occur prior to the
public hearings to allow for community input directly with the applicant. This
process is established in other areas of the State.
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IX. Intergovernmental Coordination
Issue Statement: Provide effective and efficient intergovernmental,
interdepartmental and interagency coordination.
Note: The Background, Issue Analysis, Policy Framework, and Strategies are divided
into four (4) categories each for this section: Intergovernmental Coordination,
Interdepartmental Data Sharing and Development Review, FKAA Supply of Adequate
Water Pressure for Fire Service, and Florida Keys Carrying Capacity Study and Model.
Issue Cateaoa(a):Intergovernmental Coordination
A. Background: The purpose of intergovernmental coordination is to create
partnerships with municipalities, local governments, and other public agencies to
ensure efficient, effective, and equitable management of local and regional
resources. Improved intergovernmental coordination can reduce or eliminate the
duplication of services by different jurisdictions of government. Services may
include public facilities/services as well as infrastructure, such as water, sewer, and
stormwater. The formation of partnerships may also promote and enhance planning
initiatives by local government that involves other government or public entities
and affords support by local government for activities that promote shared goals. If
those goals are not shared, coordination affords an opportunity to resolve these
opposing purposes.
B. Analysis: The County interacts with many facets of government, agencies,
districts, and groups. Coordination between constituent cities, local governments,
and State and regulatory agencies may be addressed through the provision of timely
and accurate information. Intergovernmental coordination can be viewed as a
means of simplification. By making intergovernmental relations less complex,
questions of equity can more easily be dealt with; that is, the less complex a system
is, the more accessible the system becomes to ordinary citizens whom the system is
intended to serve.
C. Policy Framework
Objective 801.6: Monroe County shall increase intergovernmental coordination
efforts with the Department of Community Affairs (DCA), the Department of
Environmental Regulation (DER), the South Florida Regional Planning Council
(SFRPC), and the County's municipalities to develop and implement the most cost-
effective and environmentally sound methods of regional solid waste management.
1. Policy 101.3.3: The Permit Allocation System for new non-residential (NROGO)
development shall specify procedures for: 1.the annual adjustment of the square
footage allocated for new non-residential development to be permitted during
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the next year based upon, but not limited to: (Note, a. - c. are not relevant here)
d) receipt or transfer of floor area by intergovernmental agreement.
Policy 102.4.5: An intergovernmental organization and management structure
shall be developed to implement the expanded acquisition program, including
representatives of the Growth Management Division, Land Authority, municipalities
and state and federal agencies.
Policy 216.3.2: Immediately following plan adoption, Monroe County shall initiate
an intergovernmental agreement with Dade County and other appropriate agencies
(e.g., Board of Regents, American Red Cross) in an attempt to provide sufficient
approved spaces outside of Monroe County for all county residents who will seek
shelter from a Category 3 or greater hurricane. In particular Monroe County shall
request that the Board of Regents identify sufficient shelter spaces based on
professionally accepted standards, in the updated campus master plan for Florida
International University to be prepared in 1992-93.
Objective 801.6: Monroe County shall increase intergovernmental coordination
efforts with the Department of Community Affairs (DCA), the Department of
Environmental Regulation (DER), the South Florida Regional Planning Council
(SFRPC), and the County's municipalities to develop and implement the most cost-
effective and environmentally sound methods of regional solid waste management.
Policy 1201.2.1: Land required to eliminate existing deficiencies in neighborhood
and community parks shall be made available through one or a combination of the
following mechanisms: (Note, 1. - 4. and 6. are not relevant here) S.
intergovernmental agreements with agencies of the state and federal governments
for use of existing publicly-owned lands or facilities by county residents.
The same mechanisms shall be used for purposes of providing adequate land to
satisfy the demand for parks and recreation facilities resulting from future
residential development.
Monroe County shall not rely upon joint use facilities to eliminate existing
deficiencies or meet future LOS requirements until interlocal, intergovernmental, or
private joint use agreements are executed which demonstrate that the facilities will
be available for general use to Monroe County residents to meet peak season,
weekend, or time of day recreation demands.
Policy 1201.3.4: A park master plan shall be completed for all new neighborhood
and community parks by September 30th of the year following the acquisition of
real property or rights therein for purposes of outdoor recreation. Exceptions shall
occur when park master plans are required as a condition of an intergovernmental
agreement, interlocal agreement, joint use agreement or long-term lease
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arrangement; in such instances the master plan shall be prepared prior to
acquisition of property rights to serve outdoor recreation.
GOAL 1301: Monroe County shall promote and encourage intergovernmental
coordination between the County; the municipalities of Key West, Key Colony Beach,
and Layton; the Counties of Dade and Collier; regional, state, and federal
governments and private entities in order to anticipate and resolve present and
future concerns and conflicts.
Objective 1301.1: Monroe County shall establish or maintain coordination
mechanisms to ensure that full consideration is given to the impacts of development
allowed by the Monroe County Comprehensive Plan upon the plans of adjacent
municipalities, adjacent counties of Dade and Collier, the region, the State and the
Federal Governments, as well as the impacts of those entities' plans on the County.
Policy 1301.1.1: By January 4, 1997, Monroe County shall increase the amount and
effectiveness of coordination mechanisms with the South Florida Regional Planning
Council (SFRPC) by receiving the Council's comments on the revised Monroe County
Comprehensive Plan and the land development regulations and addressing these
comments in plan revisions.
Policy 1301.1.2: Monroe County shall coordinate with Dade County, Florida
Department of Natural Resources (DNR) and the South Florida Water Management
District(SFWMD) on all land and water management plans affecting Card Sound.
Policy 1301.1.3: Monroe County shall resolve conflicts including but not limited to
annexation issues, with Broward, Collier and Dade Counties, the Cities of Key West,
Key Colony Beach, and Layton, and the State of Florida through the South Florida
Regional Planning Council's informal mediation process.
Policy 1301.1.4: By January 4, 1998, Monroe County shall initiate an interlocal
agreement with Dade County providing for notification and review procedures in
order to provide a mechanism for Monroe County comment on land use and
regulatory issues concerning the potable water wellfield, aquifer, and aquifer
recharge areas.
Policy 1301.1.5: Monroe County and the Florida Keys Aqueduct Authority (FKAA)
shall work cooperatively with the SFWMD and Dade County to ensure the protection
and availability of an adequate raw water supply to meet Monroe County needs
through 2010 from the Florida City wellfield by: 1. renewing of consumptive use
permit by January 4, 1998 and thereafter as required by SFWMD; and 2. if
necessary, conducting an exploratory study of the feasibility of reverse osmosis and
other technologies.
Policy 1301.1.6: By January 4, 1997, Monroe County and the City of Key West shall
set up and implement, by interlocal agreement, an entity called the Monroe County
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Technical Coordination Committee. The committee will consist of six officials, three
representing the City of Key West and three representing Monroe County, appointed
at the discretion of the City Manager and County Administrator. These officials will
represent the concerns of the following offices with each government:
1. Community Services
2. Public Works
3. Planning
The Committee will meet at least twice a year with the following agenda, with
subsequent summary reports provided to the County Administrator and City
Manager:
1. Land Use/Development Impact Review
2. Transportation Management
3. Affordable Housing
4. Public Facilities
S. Public Safety
6. Solid Waste (to include recycling)
7. Recreation and Open Space
8. Potable Water
9. Drainage
10.Natural Groundwater Aquifer Recharge
11.Conservation
12.Coastal Management
13.Permit Allocation
14.Hurricane Evacuation and Recovery
Policy 1301.1.7: By January 4, 1997 and each year thereafter on an ongoing basis
Monroe County and FKAA will coordinate an evaluation and appraisal of the Monroe
County Comprehensive Plan, adopted levels of service, annual public facility
capacity analysis, and the Consumptive Use Permit.
Policy 1301.1.8: Monroe County shall, through means in policies 1301.1.3, 1301.1.6
and 1301.1.9, improve communication and conflict resolution among the County, its
municipalities, and the State of Florida within the context of the County's
designation as an area of critical state concern. Improvement shall be measured
based on the ability of developing joint resolutions in areas of mutual concern.
Policy 1301.1.9: By January 4, 1997, Monroe County shall request that the
Department of Community Affairs (DCA) initiate intergovernmental agreements
with the Department of Health and Rehabilitative Services, Department of Natural
Resources, and Department of Environmental Regulation in order to assist them in
their efforts to streamline their effectiveness by clearly establishing a coordinated
agency review procedure that establishes each agency's responsibilities within
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Monroe County as stated in Chapter 163, F.S., Chapter 380, F.S. and Section 381.272,
F.S. The agreements will establish coordinated permit procedures and greater
understanding of mutual concerns and long-term goals.
Policy 1301.1.10: On a semi-annual basis, Monroe County shall meet with
representatives of federal, state, regional and local agencies that have regulatory
authority in the County, and periodically review those agencies' written rules in
order to keep up-to-date and informed as to how other agencies' regulatory
activities affect implementation of Monroe County's Comprehensive Plan. Monroe
County shall be responsible for developing a list to be revised annually of contact
persons within all agencies which have jurisdiction in Monroe County. In addition,
the periodic review of agency rules by the County shall be in writing and provided to
the relevant agency to assure further understanding.
Policy 1301.1.11: Monroe County shall attempt to ensure that development
activities that require permits from federal, state, regional, and county regulatory
authorities are done through a coordinated interagency review.
Policy 1301.12: By January 4, 1997, Monroe County shall establish a complete list
of existing and planned intergovernmental and interagency agreements, which shall
be updated annually.
Policy 1301.1.13: All permitting agencies shall be required per Chapter 163, F.S. to
observe and adhere to the Monroe County Comprehensive Plan and regulations if
more stringent than their own.
Policy 1301.1.14: Monroe County shall continue to participate wherever possible
in SFWMD planning and management activities. Monroe County shall continue to
review and comment on SFWMD's proposed plans and regulation amendments, and
to delegate representatives to SFWMD's Advisory Committees. Monroe County shall
also seek, through County Commission resolution, to maintain equal representation
on the SFWMD Governing Board.
Policy 1301.1.15: Monroe County shall consult with the Florida Keys Aqueduct
Authority to confirm the availability of water supply prior to the issuance of a
building permit.
Policy 1301.1.16: Monroe County shall initiate an Interlocal agreement with the
Florida Keys Aqueduct Authority (FKAA) to establish a mechanism whereby the
FKAA and the County identify the availability of water supply needed to serve
existing and new development within the Unincorporated Area, monitor the
utilization of water supply, and implement such alternative water supply projects,
traditional water supply projects, conservation project and reuse necessary to meet
Monroe County's water supply needs.
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Objective 1301.2: Through the adoption of one or more intergovernmental
agreements, Monroe County shall coordinate with municipalities and other
appropriate entities in order to plan and implement programs to improve water
quality.
Policy 1301.2.1: Monroe County shall, by specified dates given below implement
the following water quality improvement programs by intergovernmental
agreement:
Entity/Entities Subject(or their designees) Date
Wastewater treatment Florida Department of 1/4/97
inspection/compliance program Environmental Protection
for all CSDS,package plants, and (DEP) &Florida Department of
wastewater treatment plants Health and Rehabilitative
Services (HRS)
Regulation and enforcement U.S. Coast Guard,Marine and 1/4/97
program for live-aboard disposal Port Advisory Committee,
system discharge BOCC, NOAA, DEP, U.S.
Environmental Protection
Agency(EPA), and
incorporated municipalities
Identification and replacement of HRS 1/4/97
deficient OSDS
Engineering study of drainage in SFWMD,DEP 1/4/97
the Florida Keys
Interjurisdictional drainage Dade, Broward, Collier, and 1/4/97
facilities impacting on the Palm Beach Counties and
Everglades and Florida Bay SFWMD
Nearshore and Florida Bay water SFWMD, EPA,DEP,and Florida 1/4/98
quality monitoring program Keys National Marine
Sanctuary(FKNMS)
Preparation of the Sanitary FKAA, SFWMD 1/4/97
Wastewater/Stormwater Master
Plan
Water Quality and permitting DEP,ACOE,NOAA, EPA 1/4/98
issues related to canal system
aeration,backfilling, and
unplugging
Scientific studies of stress on NOAA, EPA, and DEP following
seagrass ecosystems completion
of FKNMS
Plan
Scientific studies of stress on coral NOAA, EPA, and DEP following
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reef ecosystems completion
of FKNMS
Plan
Coordination of existing and Nat'l Park Service, SFWMD, 1/4/97
potential land management Collier and Dade Counties
problems affecting water quality
and fisheries
Objective 1301.3: Level of service standards established by the Comprehensive
Plan shall be reviewed with the entity actually responsible for providing the
facilities to ensure that adequate capacity is available to meet the needs of existing
and future residents.
Policy 1301.3.1: When conflicts with other local governments arise, including but
not limited to the following topics:
1. establishing when, how and which public facilities' LOS standards
shall be measured across jurisdictional lines;
2. evaluating the impact on levels of service caused by development
within each jurisdiction, to ensure concurrency, and to assess the
development's impacts on land use;
3. allocating the relative proportions of future development;
4. establishing a system to monitor future development within the
jurisdictions; and
S. mediating disputes between the jurisdictions regarding the allocation
of future development.
Monroe County shall initiate and utilize the South Florida Regional Planning
Council's (SFRPC) informal mediation process to resolve conflicts.
Policy 1301.3.2: Monroe County shall, through its development review process,
consider the impacts of proposed developments on the LOS standards of adjacent
local governments and the Counties of Dade and Collier.
Policy 1301.3.3: As part of the planning process, Monroe County shall consider the
impacts of projected development on the comprehensive plans of incorporated
communities within the County.
Policy 1301.3.4: By January 4, 1997, Monroe County shall initiate an interlocal
agreement with Dade County to evaluate the impact of development on levels of
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service within one mile of County borders, ensure concurrency and assess impact on
existing and proposed land use.
Objective 1301.4: Establish or maintain coordination mechanisms to ensure
transportation related programs, plans, and facility improvements are fully
considered by the appropriate federal, state, regional or local agency.
Policy 1301.4.1: Monroe County shall continue operating the Monroe County
Transportation Program and coordinating the program with the Key West Port and
Transit Authority, and the Florida Department of Transportation 5-Year
Transportation Plan.
Policy 1301.4.2: Monroe County shall continue to seek funds for the transportation
disadvantaged and other transit and paratransit operations from all applicable
federal, state, regional, and other sources and shall continue to provide gas tax
revenues to public transit and paratransit services.
Policy 1301.4.3: Monroe County shall coordinate all port or related facilities with
the plans of the United States Army Corps of Engineers, resource planning and
management plan prepared pursuant to Chapter 380, Florida Statutes and approved
by the Governor and Cabinet, and the Florida Department of Transportation 5-Year
Plan as adopted. [
Policy 1301.4.4: Monroe County shall coordinate port related improvements with
the Key West Port and Transit Authority (PATA) by designating a member of the
staff of the Planning Department to act as a liaison with PATA.
Policy 1301.4.5: Monroe County shall coordinate all aviation or related facilities
with the plans of the Federal Aviation Administration, military services, resource
planning and management plan prepared pursuant to Chapter 380, Florida Statutes
and approved by the Governor and Cabinet, the Florida Department of
Transportation 5-Year Plan, and the Continuing Florida Aviation System Planning
Process as adopted.
Policy 1301.4.6: Monroe County shall maintain and update a master plan for each
public airport pursuant to the rules of the Federal Aviation Administration.
Policy 1301.4.7: Monroe County shall work with the Florida Department of
Transportation and Federal Aviation Administration to secure airport improvement
grants.
Policy 1301.4.8: Monroe County shall coordinate expansions and operation of the
Key West airport with the U.S. Navy.
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Policy 1301.4.9: Monroe County shall coordinate with the Florida Department of
Transportation (FDOT) to ensure that U.S. 1 roadway capacity improvements are
placed on FDOT's five year plan to reduce hurricane evacuation clearance times to
24 hours by the year 2010 (See Capital Improvements Policies 1401.1.4 and
1401.1.5).
Policy 1301.4.10: Monroe County, through its Planning Department Staff/Scenic
Highway Coordinator, will assist the Florida Keys Scenic Corridor Alliance and the
Florida Department of Transportation (FDOT) to support the implementation of the
Vision, Goals, Objectives and Strategies of the Florida Scenic Highway Corridor
Master Plan and the recommendations of the Florida Scenic Highway Interpretive
Master Plan.
Policy 1301.4.11: Monroe County, through its Planning Department Staff/ Scenic
Highway Coordinator, will assist the Florida Keys Scenic Corridor Alliance and the
Florida Department of Environmental Protection to support the implementation of
the Florida Keys Overseas Heritage Trail Master Plan.
Objective 1301.5: Ensure that implementation, monitoring, and evaluation of the
Monroe County Comprehensive Plan is coordinated with the plans and programs of:
The Land Authority of Monroe County,
The Monroe County Property Appraiser's Office
The District School Board of Monroe County
The Florida Department of Transportation
The South Florida Regional Planning Council
The South Florida Water Management District
The Florida Department of Environmental Regulation
The Florida Keys Aqueduct Authority
The City Electric Service,
The Florida Department of Health and Rehabilitative Services
The Florida Keys Electric Cooperative
The Monroe County Sheriff's Department
Monroe County Housing Authority
The Key West Port and Transit Authority
and other providers of health, safety, and educational services not having regulatory
authority over the use of land.
Policy 1301.5.1: Monroe County shall request that private providers of health,
safety, and educational services review and comment regarding this comprehensive
plan.
Policy 1301.5.2: Monroe County shall continue to share data with the City Electric
Service, Florida Keys Aqueduct Authority, the Monroe County Property Appraiser,
SFWMD and other agencies for use in GIS applications.
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Policy 1301.5.3: The existing coordination mechanism between the Monroe County
Land Authority and the Florida Department of Community Affairs shall be
maintained. By January 4, 1998, the Land Authority shall research and publish a
report examining the potential to expand its operations and effectiveness,
particularly within the context of the needs identified in this Comprehensive Plan,
including the Land Authority becoming the responsible authority for acquiring and
administering a TDR program. The report shall identify specific actions (if any)
which Monroe County should take to assist the Land Authority.
Policy 1301.5.4: By January 4, 1997 Monroe County, in updating its drainage
policies and ordinances, shall meet with the SFWMD and the SFRPC to ensure that
the local regulatory framework is consistent with the planning objectives and
regulations of the region.
Policy 1301.5.5: The Growth Management Division shall work with the County
Housing Authority to encourage development of elderly and institutional housing
and identify funding sources for community-based non-profit organizations to
provide affordable housing for low-income residents.
Policy 1301.5.6: Monroe County shall coordinate with the District School Board of
Monroe County on the siting and expansion of required facilities.
Policy 1301.5.7: Monroe County shall, on an annual basis during the preparation of
the Concurrency Management Report, coordinate with the Municipal Services
District, the Florida Keys Aqueduct Authority, City Electric and the Florida Keys
Electric Cooperative to determine the acreage and location of land needed to
accommodate projected service expansions.
Policy 1301.5.8: Monroe County shall, on an annual basis, coordinate with hospitals
in the County to ensure the availability of adequate land to meet hospital expansion
and improvement requirements.
Objective 1301.6: Monroe County shall establish or maintain mechanisms of
coordination and cooperation to ensure the protection and restoration of wetlands.
Policy 1301.6.1: Monroe County shall participate in the Florida Keys Advance
Identification of Wetlands (ADID) Program.
Policy 1301.6.2: As part of the ADID Program, Monroe County shall continue to
cooperate with the EPA, the U.S. Army Corps of Engineers (ACOE), the Florida Game
and Fresh Water Fish Commission (FGFWFC), and the U.S. Fish and Wildlife Service
(USFWS) to develop a wetlands functional assessment protocol. This assessment
protocol shall be tailored for use in the Florida Keys and shall be based upon habitat
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suitability, water quality, and flood flow alteration functions of marine and
freshwater wetlands.
Policy 1301.6.3: As part of the ADID Program, Monroe County, EPA, USFWS, and
FGFWFC will jointly carry out the functional analysis of wetlands. This shall be
completed on all wetland vegetative cover areas within improved subdivisions and
on selected sites outside improved subdivisions, according to statistically valid
selected sample locations for each wetland vegetative cover type.
Policy 1301.6.4: Monroe County shall work cooperatively with the ACOE, EPA, DER,
DNR, FGFWFC, and others as appropriate, to determine funding sources to support
the wetlands restoration program.
Policy 1301.6.5: Monroe County shall cooperate with the FGFWFC in its effort to
map freshwater wetlands and disturbed wetlands.
Policy 1301.6.6: The Monroe County Growth Management Division in conjunction
with the Monroe County Land Authority and other federal and state agencies will
develop and administer the wetlands acquisition program as part of the Monroe
County Land Acquisition Master Plan.
Objective 1301.7: Monroe County shall implement mechanisms to identify and
resolve intergovernmental coordination needs pertaining to environmental issues
and natural resource protection.
Policy 1301.7.1: By January 4, 1997, Monroe County shall initiate an interlocal
agreement with the U.S. Fish and Wildlife Service (USFWS) and SFWMD to identify
and map the freshwater lenses of the Florida Keys and their associated recharge
areas. Previously conducted studies by the Audubon Society and the SFWMD will be
utilized to the greatest extent possible. An analysis of the condition of the lenses
shall also be completed. The mapping shall be incorporated onto the Geographical
Information System.
Policy 1301.7.2: Monroe County shall coordinate with applicable State agencies to
promote utilization of grey water storage systems and utilization for all exterior
irrigation and flushing purposes.
Policy 1301.7.3: By September 30th of each year, Monroe County, in coordination
with local DER representatives, shall review the annual air quality monitoring data
for Monroe County. Any violations of the NAAQS or trends in ambient air quality
shall be reported to the Board of County Commission.
Policy 1301.7.4: The County shall coordinate its upland habitat mapping and
evaluation efforts with the U.S. Environmental Protection Agency, U.S. Army Corps
of Engineers, Florida Department of Environmental Regulation, Florida Department
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of Natural Resources, South Florida Water Management District, Florida Game and
Fresh Water Fish Commission, and the National Audubon Society (Research
Department).
Policy 1301.7.5: Monroe County, in cooperation with appropriate state and/or
federal agencies, shall identify current and future land use activities causing or
potentially causing adverse impacts on sensitive natural features and resources
within state and federal conservation lands and develop a management plan for the
protection of each Conservation Land Protection Area.
Policy 1301.7.6: Monroe County shall assist the DCA in developing a coordinated
agency review pursuant to section 380.051, Florida Statutes. The Monroe County
Growth Management Division shall continue to conduct meetings with the
Department of Environmental Regulation, the National Oceanographic and
Atmospheric Administration, the Department of Natural Resources, and the U.S.
Army Corps of Engineers to identify the environmental issues and contradictions in
rules and authorities related to the permitting process for marinas, docking
facilities, piers, mooring sites, hardened vertical shoreline structures, and dredging
in the Florida Keys. Within one year of the effective date of this comprehensive
plan, after issues have been identified, Monroe County shall revise its Land
Development Regulations. (See Policies 103.2.13, 203.6.1, 212.4.7, 212.5.10, and
212.6.5.)
Policy 1301.7.7: Monroe County shall coordinate its boating impacts management
activities with those of the National Marine Sanctuary Management Plan, the
Department of Natural Resources, the Coast Guard, and the U.S. Fish and Wildlife
Service.
Policy 1301.7.8: Monroe County shall work cooperatively with the U.S. Fish and
Wildlife Service to promote the recovery of plant species designated by the federal
government as threatened and endangered.
Policy 1301.7.9: By January 4, 1998 Monroe County shall implement an ongoing
coordination program with the National Park Service, the South Florida Water
Management District, Dade County and Collier County to address existing and
potential land management problems in the region which may affect the
conservation, use and protection of unique vegetative communities and species of
special status on mainland Monroe County.
Policy 1301.7.10: Monroe County shall implement the following species of special
status identification and protection programs in coordination and cooperation with
all pertinent agencies and organizations, including but not limited to the following:
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Subject Entity/Entities
Prepare management guidelines for DEP, FGFWFC, and USFWS
federally-designated wildlife species
By January 4, 1998 prepare a list of FGFWFC and USFWS
undesirable exotic wildlife populations
Identify probable concentrated range of DEP, The Nature Conservancy,
wildlife species of special status FGFWFC, and USFWS
Promote recovery of threatened and FGFWFC and USFWS
endangered species by coordinating
development review and protection of
horizon sites
By January 4, 1998 update the list of DEP, National Audobon
offshore island rookeries and nesting Society, USFWS, NOAA, and
areas where development shall be FGFWFC
prohibited
Determine protection and habitat USFWS and FGFWFC
preservation measures to assist
with recovery of the Indigo
Snake, Key Largo Wood Rat,
Silver Rice Rat, Key Largo Cotton
Mouse and the Lower Keys Marsh
Rabbit
Policy 1301.7.11: Monroe County shall work cooperatively with the Department of
Environmental Regulation and the Department of Natural Resources to identify
alternatives for adaptive reuse and reclamation of abandoned mining pits in the
Florida Keys.
Policy 1301.7.12: By January 4, 1998, Monroe County shall initiate discussions with
the FKAA and providers of electricity and telephone service to assess the measures
which could be taken to discourage or prohibit extension of facilities and services to
Coastal Barrier Resource Systems (CBRS) units.
Policy 1301.7.13: Monroe County shall encourage and participate in the
development and implementation of pollution response plans. These shall include
participation in an oil response team (See Policy 207.8.6), and plans for hazardous
materials emergencies (See Policy 801.5.2).
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Policy 1301.7.14: Monroe County shall, by January 4, 1998, identify the technical
assistance available from the U.S. Department of Agriculture, Soil Conservation
Service for development and implementation of a soil erosion and sedimentation
control program.
Policy 1301.7.15: Monroe County shall coordinate with DNR and encourage total
acquisition of North Key Largo under the CARL program.
Policy 1301.7.16: The Monroe County Growth Management Division shall continue
its active involvement with the ongoing Florida Keys interagency committee.
Through this established process, Monroe County shall solicit comments from and
offer comments to DER, DNR, NOAA, SFWMD, USFWS, FGFWFC, ACOE and DCA on
permitting, planning, regulatory revisions, and other agency-related issues.
Objective 1301.8: By January 4, 1997, Monroe County shall initiate the necessary
interlocal coordination mechanisms to improve hurricane evacuation times and
assure the provision of an adequate number of shelter facilities for evacuating
Monroe County residents.
Policy 1301.8.1: Monroe County shall seek interlocal agreements with one or more
appropriate agencies for installation and funding sources of at least four tide gauges
at critical locations throughout the Keys.
Policy 1301.8.2: Monroe County shall initiate an interlocal agreement, with the
incorporated municipalities and other appropriate agencies including the National
Weather Service, to draft and implement a comprehensive program for expanded
resident and visitor hurricane awareness and evacuation procedures. The program
will identify education needs and adequate funding sources to include, at a
minimum, staffing requirements, distribution of hurricane public awareness
brochures, media coverage, and public service announcements in English and
Spanish.
Policy 1301.8.3: By January 4, 1998, Monroe County shall coordinate with the
Florida Department of Transportation to draft and implement a program which will
establish priorities for elevation of low segments of U.S. Highway 1. The program
shall, at a minimum, identify funding sources and scheduling.
Policy 1301.8.4: By January 4, 1997, Monroe County shall develop a plan which will
identify the appropriate agencies required for coordination and funding of one
Category 5 Emergency Operations Center (EOC), at a minimum, in each of the three
EOC districts.
Policy 1301.8.5: By January 4, 1997, Monroe County shall coordinate with the
Department of Community Affairs' Division of Emergency Management, the South
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Florida Regional Planning Council, and Dade County to identify sufficient approved
shelter spaces outside of Monroe County for all county residents who will require
shelter from a Category III or greater hurricane. Priority consideration shall be
given to expansion of the currently designated shelter at Florida International
University in order to consolidate Monroe County shelter spaces in one location.
Policy 1301.8.6: By January 4, 1998, Monroe County shall enter into an interlocal
agreement with Dade County and other appropriate agencies (e.g., the Board of
Regents) to provide sufficient additional approved spaces outside of Monroe County
capable of withstanding Category III or stronger hurricanes and their associated
surges for all county residents who will require shelter from a Category III or
greater hurricane.
Policy 1301.8.7: By January 4, 1998, Monroe County shall coordinate with the U.S.
Coast Guard to identify areas of mutual concern during a hurricane evacuation and
identify the appropriate coordination mechanisms and procedures.
Objective 1301.9: Monroe County shall by January 4, 1998, implement an ongoing
coordination program with other city, state and federal governmental agencies to
make available city, state and federally-owned parks and recreational facilities for
use by county residents. (See Recreation and Open Space Objective 1201.8 and
related policies.) [9J-5.014(3)(b)2 and 4]
Objective 1301.10: Monroe County shall increase intergovernmental coordination
efforts with the Department of Community Affairs (DCA), the Department of
Environmental Regulation (DER), the South Florida Regional Planning Council
(SFRPC), and the County's municipalities to develop and implement the most cost-
effective and environmentally sound methods of regional solid and hazardous waste
management.
Policy 1301.10.1: Monroe County shall continue to negotiate an interlocal
agreement with the Cities of Key West, Key Colony Beach and Layton for the
consolidated handling, processing and disposal of solid waste.
Policy 1301.10.2: Monroe County shall continue coordination efforts with the DER
and other involved federal and state agencies to pursue funding for the
implementation of Monroe County's Solid Waste and Resource Recovery
Management Plans.
Policy 1301.10.3: Monroe County shall coordinate with and pursue with the
Florida Association of Counties for the state-wide enactment of beverage container
deposit laws.
Policy 1301.10.4: By January 4, 1998, Monroe County shall implement a County-
wide mandatory curbside recycling program for all residential units and continue
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commercial recycling programs for all handling and disposal of newspapers, glass,
plastics and aluminum waste products in order to meet mandated state solid waste
requirements.
Policy 1301.10.5: By January 4, 1998, Monroe County shall participate in a Region-
wide hazardous waste program consistent with the SFRPC Regional Comprehensive
Policy Plan.
D. Strategies - Intergovernmental Coordination
Comments related to intergovernmental coordination were collected at the Scoping
Meeting and through interviews with County staff. The suggestions (provided in
verbatim) for coordination activities are provided below:
South Florida Water Management District: Coordination is extensive considering
the District's coordination of the County's water supply plan and its role as water
quality manager; however future opportunities for coordination include:
• The SFWMD will begin the process of updating the Lower East Coast Water
Supply Plan next year. The process will be closely coordinated with local
governments and FKAA.
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United States Army Corps of Engineers: Coordination is adequate; however future
opportunities for coordination could be extensive:
• The County should coordinate with the Army Corps of Engineers to establish a
review to monitor permit compliance.
• The County should coordinate with the Army Corps of Engineers to improve the
photic zones in over dredged basins.
• The County should coordinate with the FKNMS and Park Service to
promote in kind mitigation for resource loss.
• The County should coordinate with appropriate external agencies to develop a
response plan for manmade and natural disasters which allow pre-
authorizations to restore beaches and clean natural areas.
Everglades and Dry Tortugas National Parks: The County currently does not
coordinate directly with the National Park Service. however, the County's Growth
Management Division should incorporate and participate in the National Parks
General Management Plans that are currently being operated.
Miami-Dade County Department of Planning and Zoning_ Monroe County's
coordination with Miami-Dade County is adequate, but limited. Additional
opportunities for coordination activities include:
• Miami-Dade County staff sharing experiences with the Monroe County staff
pertaining to the updated AICUZ Report and Joint Land Use Study prepared
by Miami-Dade County, City of Homestead, and Homestead Air Reserve
Base over the last three years.
• Continue to coordinate transit service between Miami-Dade and Monroe
Counties and coordinate hurricane evacuation efforts, especially as the SFRPC's
modeling efforts conclude in the next two to three months.
Florida Keys Aqueduct Authority: Coordination with the FKAA is currently
adequate; however additional coordination activities include:
• The existing Interlocal Agreement for fire hydrants outlines how the FKAA is a
partner with Monroe County in development and operation of wastewater
facilities in unincorporated lower keys. This agreement is adequate in its
effectiveness. It works, however it's not necessary and `just adds more
bureaucracy to the process':
• Interagency involvement is needed between FKAA, municipalities, neighboring
utilities (near the FKAA wellfield) to address wellfield protection issues.
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• There is currently a monthly Utility Coordination meeting to address current
and future utility work. From that meeting, a GIS user group meeting has
evolved to share GIS data.
South Florida Regional Planning Council: Coordination is currently adequate; .
however, additional coordination activities could be expanded:
• If issues arise in reviewing the Strategic Regional Policy Plan (SRPP) for South
Florida, the SFRPC is available to coordinate and potentially address regional
issues of interest to Monroe County through future updates to the SRPP.
Florida Department of Transportation: Coordination with FDOT is adequate,
although presently a conflict exists regarding roadway construction activities.
FDOT's representation has been limited. Potential for better coordination is
extensive due to the role of U.S. 1 in the County.
• Monroe County must weigh the priority and benefit of the hurricane evacuation
as the local desire for livable communities. A potential restriction in the capacity
up stream may have an overall impact to the evacuation time for the keys.
• Control coordination regarding road improvement projects.
Naval Air Station-Key West: Coordination with NAS-Key West is fair, but could be
strengthened through additional goals, objectives and policies (GOPs) to improve
intergovernmental coordination between the County and the military. Policies
should include greater coordination during the building permit review process for
development adjacent or proximate to military installation, and include the military
as an ex-officio member of the Development Review Committee (DRC) since the DRC
is a decision making body for development approvals.
Note: The above is a direct quote from the written documentation received at the
Scoping Meeting. However,for clarification purposes, the Planning Commission is the
decision making body(not the DRC)for development approvals.
General Comments: 1) The County, local municipalities, and agencies should be
encouraged to work together to provide the best services to at the lowest costs. 2)
Coordination between Monroe County and Florida Power and Light is important
with respect to the proposed project to expand FPL's Turkey Point nuclear facili
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Overall, since the last EAR (2004), the County has successfully implemented the
goals, objectives, and policies (GOPs) of the Intergovernmental Coordination
Element.
• Encourage more frequent participation by FDOT to better coordinate FDOT
activities along US1 with the community's plans and projects.
• The County should consider creating a consolidated list of all interlocal
agreements. The current system of searching and obtaining interlocal
agreements through the Monroe County Clerk of Court website does not produce
an exclusive listing that is user friendly and easy to find.
• Update all date certain policies concerning interlocal agreements and
coordination.
• The County, TDC and the Chamber of Commerce should jointly promote the
County's parks as family-friendly attractions.
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Issue Cateaoa(h):Interdepartmental Data Sharing and Development Review
A. Background: The County has established internal coordination processes
for review and coordination between departments, including the Development
Review Committee (DRC).
B. Analysis: The DRC consists of the Development Review Coordinator,
Directors of Monroe County's Planning and Environmental Resources, Planning and
Development Review Manager, Senior Administrator, Marine Resources and Sr.
Administrator Environmental Resources, the Director of Engineering and Public
Works,the
Fire Marshal, Health Department, County Engineer and Biologist and any other
County employee or official designated by the County Administrator or Planning
Director. Other members include representatives of each local, Regional, State or
Federal agency which has an intergovernmental agreement with the County for
coordinated development review.
The committee meets at least twice a month. The duties of the DRC are as follows:
1) Reviews all applications for development approval and reports its
recommendations to the Planning Commission, Planning Director and Board of
County Commissioners.
2) Reviews all applications for Land Development Code and the Comprehensive
Plan amendments.
3) Maintain minutes and records as required by State law.
C. Policy Framework:
GOAL 1302: Monroe County shall improve coordination within County government
agencies in order to provide better service to the citizens of Monroe County.
Objective 1302.1: By January 4, 1997, Monroe County Government and its
Divisions of Public Safety, Community Services, Growth Management, and Public
Works shall inventory, analyze, create, and improve formal and informal
coordination mechanisms.
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Policy 1302.1.1: By January 4, 1998, discussions between the Divisions of Public
Safety, Community Services, Growth Management, and Public Works shall formalize
existing or new coordination mechanisms to avoid conflicts and improve delivery of
services to the citizens of Monroe County. These coordination mechanisms will
address the following issues:
1. The development review process, permit allocation process and the
concurrency management process;
2. The responsibilities of the Department of Code Enforcement;
3. Hurricane preparedness and response plans;
4. Public safety needs, including law enforcement coordination
S. requirements; and
6. The County's need for a utilities coordination group similar to that
which exists in the City of Key West. [9J-5.015(3)(c)3]
Policy 1302.1.2: Upon adoption by the Monroe County Board of County
Commissioners of revised land development regulations, the Growth Management
Division shall establish written standard operating procedures to expedite all
proposed amendments to the land development regulations and comprehensive
plans in the most efficient and least time consuming manner possible, as per
Chapter 380, F.S. In addition, the Growth Management Division will establish
procedures to ensure that all plan amendments and land development regulation
amendments are reviewed for consistency with the adopted plan and minimum
state laws and rules.
D. Strategies - Interdepartmental Data Sharing and Development Review
Coordination between departments appear to be adequate,therefore no strategies
are recommended.
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Issue Cateaoa&):FKAA Supply ofAdeQuate Water Pressure for Fire Service
A. Background: Usually communities use the public water supply for fire
protection. Large fire hydrants connected to large diameter water pipes deliver the
necessary flow rate for fighting fires; however, the Florida Keys Aqueduct Authority
(FKAA) has not had sufficient water pressure to provide fire protection throughout
the Keys. Hydrants can provide only enough water for "first aid" in starting to
control a fire until adequate water from other sources can be brought to the site.
The following Table 62 provides the parameters for the new and proposed
(upgraded) systems.
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Table 62: Fire Protection Parameters for Selected Distribution Systems
throughout the Keys
• •.
Lake Surprise - Between Adams Cut 1,000 120,000
and Lake Surprise
arbor 1,000 120,000
nier 500 60,000
tion Key 500 60,000
Matecumbe 500 60,000
Key/Grassy Key 750 90,000
hon, Crawl Key 1,000 120,000
hon, 69th Street 500 60,000
hon,Vaca Cut 1,000 120,000
hon, 33rd Street 1,000 120,000
d Key 500 60,000
erland Key 500 60,000
Sugarloaf Key 500 60,000
Sugarloaf Key 500 60,000
Island Distribution 1,000 120,000
Source: FKAA 20-Year Water System CIP Master Plan,December 2006
Monroe County,FL,10 Year Water Supply Facilities Work Plan,May 2009
B. Analysis: The FKAA and the County entered into an agreement in September
2007, for installation and maintenance of fire hydrants in unincorporated Monroe
County. This agreement acknowledges the majority of the water distribution system
is not designed to provide fire flow and FKAA does not guarantee fire flow and the
purpose of the fire hydrants will be to provide various locations to fill fire fighting
apparatus. The agreement also states the County Fire Rescue will recommend fire
hydrant locations for proposed plans on the Distribution system, while FKAA will
evaluate the technical and economic feasibility of the recommended locations.
Hydrants that are determined to be technically feasible will be installed.
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C. Policy Framework:
Objective 701.8: FKAA shall improve its capacity to provide for fire flows in the
areas outlined in Policy 701.8.1 to ensure the protection of the public health, welfare
and safety.
Policy 701.8.1: By the year 2000, the FKAA, in accordance with its Capital
Improvements Program, shall continue to upgrade the distribution system toward
the goal of providing fire flow capabilities in the following areas: Proposed Fire Flow
Areas:
1. Key West and Stock Island (current fire flow areas)
2. Everywhere on U.S. 1, except non-developable areas
3. Ocean Reef
4. Key Colony Beach
5. Layton
6. Marathon
7. Duck Key
8. Tavernier
Proposed Fire Flow Requirements by Land Use Zone:
1. Suburban Residential 750 GPM
2. Mobile Home, Recreational Vehicle 1,500 GPM
3. Urban Commercial, Suburban Commercial, and Commercial 2,000
GPM
All commercial facilities not along U.S. 1 shall provide "on site" fire
abatement, as currently required. In all other areas the FKAA aqueduct
system shall not be considered even as a future primary fire abatement
source. However, all line upgrades shall be designed and constructed so as to
provide approximately 250 GPM to extreme locations.
Policy 701.8.3: Since fire flow improvements in the areas identified by Policies
701.8.1 and 701.8.2 will result in significant fire insurance premium reductions for
affected areas, charges for fire flow improvements in these areas shall be charged to
these areas only, as opposed to general system absorption of such charges.
D. Strategies - FKAA Supply of Adequate Water Pressure for Fire Service
• Continue to implement the policies above, including the recommendations for
adequate water pressure.
Issue Cateaoa(d):Florida Keys Carrying Capacity Study and Model
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A. Background: The County's coordination activities with the SFRPC for the
Carrying Capacity Study is the basis for this background data. On December 12,
1995 the Administration Commission (Commission) found the Monroe County 1992
Comprehensive Plan, as proposed, not in compliance, and noticed a proposed rule
(Rule 28-20.100, F.A.C.). The Commission ordered facilitated rule making/me diation
to address outstanding issues. The disputed provisions of the Rule required further
action. Mediation was conducted resulting in subsequent rule changes.
The Final Order in 1995 initiated the Florida Keys Carrying Capacity Study (FKCCS).
In 1996 the Work Program required the development of a carrying capacity analysis
study completed by July 2002. The US Army Corps of Engineers and DCA formed a
partnership to jointly fund and complete the study and work began on the Carrying
Capacity Impact Analysis Model (CCIAM) and the study. The goal of the FKCCS,
excerpted from Rule 28-20.100, F.A.C.was as follows:
"The carrying capacity analysis shall be designed to
determine the ability of the Florida Keys ecosystem and
the various segments thereof, to withstand all impacts of
additional land development activities."
B. Analysis: The draft final report was issued in 2001 and it was peer reviewed
by the National Research Council determining that the CCIAM was not ready to
determine the ability of the Keys ecosystem to withstand all impacts of additional
development activities as required by Rule 28-20.100 F.A.C. The Carrying Capacity
Study and model were revised and it was determined that the CCIAM may be a
useful tool in some circumstances but it had limitations. In particular, the CCIAM is
unable to determine the impact on nearshore water quality. This peer review
committee agreed on the following four recommendations of the study:
• Prevent encroachment into native habitat because of severe depletion by
historic development activities;
• Continue restoration and land acquisition programs, implement the wastewater
and storm water master plans, and continue ongoing research and management
activities in the Florida Keys National Marine Sanctuary (FKNMS);
• Concentrate on redevelopment and infill for future development; and
• Increase efforts to manage remaining habitats and resources.
In November 2002, DCA initiated a Florida Keys Carrying Capacity/Rule 28.20, F.A.C.
Work Group to assist in the implementation of these recommendations. Year Six of
the Work Program (July 13, 2002 -July 12, 2003), enacted in Rule 28-20.100, F.A.C.,
directed the County to implement the FKCCS by adopting amendments to ROGO, the
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MCLDC, the Future Land Use Map (FLUM) series and the maximum permitted
densities.
C. Policy Framework:
Policy 101.6.4: The County will coordinate with DCA to ensure that DCA continues
to support enhanced land acquisition efforts in the Keys based on needs identified in
this comprehensive plan. This coordination shall ensure continued support of state
acquisition efforts under CARL, Preservation 2000 and the Florida Communities
Trust programs. The County encourages the Department to work at the state level to
create a dedicated acquisition fund for Tier 1 lands on Big Pine Key and No Name
Key based on the results of the Carrying Capacity Study, the requirements of the
incidental take permit and Habitat Conservation Plan and the Master Plan for Big
Pine Key and No Name Key. The County and the Department will also support
appropriate legislative changes which will have the effect of enhancing the Land
Authority efforts throughout the County, and the South Florida Water Management
District's acquisitions on Big Pine Key. Similarly, cooperation will continue with
private acquisition efforts, such as The Nature Conservancy and the Florida Land
and Sea Trust.
Objective 102.9: In cooperation with other responsible state and federal agencies,
the County shall complete and implement a cooperative land management program
for publicly owned lands acquired through implementation of the Monroe County
Land Acquisition Master Plan (Objective 102.2), Goal 105 and the Florida Keys
Carrying Capacity Study.
Objective 205.1: Monroe County shall utilize the computerized geographical
information system (GIS) and the data, analysis and mapping generated in the
Florida Keys Carrying Capacity Study (FKCCS), FMRI, habitat maps and field
evaluation to identify and map areas of upland vegetation in the Florida Keys and to
prepare Tier Overlay District Maps as required in Policy 105.2.2.
Objective 205.2: To implement Goal 105 of this Plan and the recommendations in
the Florida Keys Carrying Capacity Study (FKCCS), Monroe County shall adopt
revisions to the Land Development Regulations which further protect and provide
for restoration of the habitat values of upland native vegetated communities,
including hardwood hammocks and pinelands.
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D. Strategies - Florida Keys Carrying Capacity Study and Model
• The County has implemented the requirements of the Work Program related to
the FKCCS,therefore, no amendments are proposed at this time.
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