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2006-042
ORDINANCE NO. 2006 - 042 AN ORDINANCE OF INDIAN RIVER COUNTY, FLORIDA, AMENDING THE TEXT OF THE COMPREHENSIVE PLAN'S CAPITAL IMPROVEMENTS ELEMENT; AND PROVIDING SEVERABILITY AND EFFECTIVE DATE. WHEREAS, the Board of County Commissioners adopted the Indian River County:,Comprehensive Plan on February 13, 1990, and WHEREAS, F.S. 163.3177(3)(b)1. allows the County, by ordinance, to make corrections and modifications to its capital improvements element outside of the standard twice a year amendment limitation threshold; and WHEREAS, the County recently received a proportionate fair share application for a portion of link 24105 (27th Avenue from 13`h Street S.W. to 17`" Street S.W.) which is not included in the County's five year Capital Improvements Program; and WHEREAS, the Capital Improvements Element must be revised to include the referenced portion of link 24105 in the 5 year capital improvements program concurrent with the approval of the proportionate fair share agreement for the referenced portion of link 24105; and WHEREAS, the Board of County Commissioners must determine that adding that portion of the link to the County's five year Capital Improvements Program is financially feasible; and WHEREAS the applicant, through a developer's agreement, will pay the entire cost of improvement of that portion of the link and will build the improvement; and WHEREAS, the Board of County Commissioners of Indian River County advertised for a Public Hearing to Consider Adopting an Ordinance Amending the Capital Improvements Element of the Comprehensive Plan, to be held on December 5, 2006; and WHEREAS, the Public Hearing was opened on December 5, 2006 and continued until the December 12, 2006 Board of County Commissioners meeting, at which parties in interest and citizens were heard; 1 of 4 ORDINANCE NO. 2006 - 042 NOW, THEREFORE, BE IT ORDAINED by the Board of County Commissioners of Indian River County, Florida, that: SECTION 1. Financial Feasibility The Board of County Commissioners finds that the proposed amendment of the Capital Improvements Element to add the portion of 27th Avenue from 13th Street, S.W. to 17th Street, S.W. to the 5 year CIP is financially feasible since the cost of the project will be paid entirely by a developer as provided in an adopted developer's agreement between the County and the developer. SECTION 2. Comprehensive Plan Amendment Adoption and Transmittal The amendment to the Indian River County Comprehensive Plan identified in Section 3 is hereby adopted, and three (3) copies are directed to be transmitted to the State of Florida Department of Community Affairs, and one (1) copy is directed to be transmitted to the Treasure Coast Regional Planning Council. SECTION 3. Amendment to the Comprehensive Plan Amended Capital Improvements Element; (Exhibit A) SECTION 4. Repeal of Conflicting Provisions All previous ordinances, resolutions, or motions of the Board of County Commissioners of Indian River County, Florida, which conflict with the provisions of this ordinance are hereby repealed to the extent of such conflict. SECTION 5. Severability It is declared to be the intent of the Board of County Commissioners that, if any provision of this ordinance or these Indian River County Comprehensive Plan Amendments is for any reason finally held invalid or unconstitutional by any court of competent jurisdiction, such provision shall be deemed a separate, distinct and independent provision and such holding shall not affect the validity of the remaining provisions. SECTION 6. Effective Date This ordinance shall become effective upon filing with the Department of State. Approved and adopted by the Board of County Commissioners of Indian River County, Florida, on this 12th day of December, 2006. 2 of 4 ORDINANCE NO. 2006 - 042 This ordinance was advertised in the Press -Journal on the 20thday of November, 2006, for a public hearing to be held on the 5th day of December, 2006, and continued on December 12, 2006, at which time it was moved for adoption by Commissioner r),gvi ,, , seconded by Commissioner Wheel Pr and adopted by the following vote: Gary C. Wheeler, Chairman Aye Sandra L. Bowden, Vice Chairman Aye Wesley S. Davis, Commissioner Aye Joseph E. Flescher, Commissioner Aye Peter D. O'Bryan, Commissioner Ave BOARD OF COUNTY COMMISSIONERS OF INDIAN RIVER COUNTY BY: Gar . Wheeler, Chairman ATTEST BY: %R. Jeffrey K. Barton, Clerk Acknowledgment by the Department of State of the State of Florida this 2-1 day of bac--`e e --r . 2006 Acknowledgment from the Department of State received on this day of , 2006, at A.M./P.M. and filed in the office of the Clerk of the Board of County Commissioners of Indian River County, Florida. APPROVED AS TO FORM AND LEGAL SUFFICIENCY oj) William G. C llins II, ounty Attorney �C 3 of 4 ORDINANCE NO. 2006 - 042 APPROVED AS TO PLANNING MATTERS Roe . Keating, AICP Community Development Director Indian River Co. Approved Date Admin. Legal Budget Dept. /f Risk Mgr. F:\Community Development\Users\LONG RANGE\CompPlan Amendments\December 2006\Ordinance - CIE.doc 4 of 4 Indian River County 2020 Comprehensive Plan A ■ / A Indian River County Community Development Department Adopted: , 2006 Supplement _ (Entire Element); Ordinance 2006 - Exhibit A i Comprehensive Plan Capital Improvements Element Table of Contents List of Figures ii List of Tables iii Introduction 1 Existing Conditions 2 Financial Resources 2 Expenditures 19 Existing Outstanding Debt 22 Local Policies and Practices 23 Analysis 26 Analysis of the Timing and Location of Capital Improvements 27 Needs Assessment 28 Fiscal Assessment 30 Fiscal Assessment Summary 40 Concurrency Management Plan 40 Project Applicability 41 Service Standards 41 Demand 42 Availability of Capacity 44 Regulation 47 Monitoring System 47 Applicability 49 Goal, Objectives, and Policies 50 Implementation, Evaluation, and Monitoring 58 Implementation 58 Evaluation and Monitoring Procedures 60 Appendix A: Five -Year Schedule of Capital Improvements 63 Appendix B: Priority Transportation Capital Improvements Program 81 Appendix C: Long Range Transportation Plan 2030 Roadway Improvement Plan 82 Community Development Department Indian River County i i Comprehensive Plan Capital Improvements Element List of Fizures Figure Title page 6.1 Ad Valorem Tax Revenue 3 6.2 Enterprise Fund Revenue 3 6.3 User Fees and Charges 4 6.4 Special Assessment Revenue 5 6.5 Impact Fee Revenue 5 6.6 Local Discretionary Sales Surtax 6 6.7 Tourist Development Tax 7 6.8 Local Option Fuel Tax 9 6.9 Franchise Fee/Tax Revenue 10 6.10 Half -Cent Local Government Sales Tax 13 6.11 County Revenue Sharing . 14 6.12 Constitutional Fuel Tax Funds 14 6.13 County Fuel Tax 15 6.14 Alcoholic Beverage License Tax 16 6.15 Mobile Home License Tax 17 6.16 Distribution of Revenue by Category 18 6.17 General Expenditures by Function 21 6.18 Future Capital Improvements Expenditures 30 Community Development Department Indian River County ii i Comprehensive Plan Capital Improvements Element List of Tables Table Title page 6.1 Indian River County Sources of Funds (FY 04/05) 2 6.2 Optional Tourist Taxes on Transient Rental Facilities 8 6.3 Local Fuel Tax Rates 10 6.4 Indian River General Revenues by Source 18 6.5 Indian River County Expenditures by Function 19 6.6 Indian River County Existing Long Term Debt 23 6.7 Future Capital Improvement Expenditures for Indian River 29 County 6.8 Overall General Revenue Projection Summary 31 6.9 Earmarked Projected Revenue by Comprehensive Plan Element 32 6.10 Indian River County Tax Base and Millage Projections 32 6.11 Indian River County General Expenditures Projection Summary 33 6.12 Projected Expenditures for Water, Sewer, and Solid Waste 34 6.13 Indian River County Overall Operating Cost Projections 34 6.14 Indian River County Estimated Ability to Raise Bonds Without 35 Public Vote 6.15 Indian River County Bond Schedule 36 6.16 Service Level Measures for Concurrency Related Facilities 42 6.17 Monitoring System Design 48 6.18 Monitoring System Tasks 48 6.19 Capital Improvements Element Implementation Matrix 59 6.20 Capital Improvements Element Evaluation Matrix 61 Community Development Department Indian River County iii Comprehensive Plan Capital Improvements Element Introduction The Capital Improvements Element (CIE) summarizes the needed capital facilities identified in the other comprehensive plan elements and describes the financial means by which these facilities are to be funded. This element demonstrates the economic feasibility of the entire comprehensive plan and prioritizes the funding of all the public facilities identified in the other comprehensive plan elements based on the level of needs and the availability of funds. For purposes of this element, a capital improvement is a substantial facility (land, building, or major equipment) that costs at least $25,000 and which is required to maintain adopted level -of -service standards or to meet objectives identified in the county's comprehensive plan. Included in the CIE are an existing conditions section, an analysis section, a concurrency management section, a goals, objectives, and policies section, and an implementation section. Financial resources and existing local policies and practices are discussed in the existing conditions section. The fiscal condition of both the county and its comprehensive plan, as well as other issues concerning capital improvement projects, are assessed in the analysis section of this element. The administrative framework for maintaining public facility service levels is addressed in the concurrency management section, while the county's overall capital improvements strategy is discussed in the goals, objectives and policies section. Finally, a 5 -Year Schedule of Capital Improvements, as well as monitoring and evaluation programs, can be found in the implementation section of this element. Community Development Department Indian River County 1 I Comprehensive Plan Capital Improvements Element Existing Conditions Financial Resources One of the chief functions of the Capital Improvements Element is to inventory the major sources of revenue available to the county. These revenue sources determine the county's capability to fund needed capital improvements. Table 6.1 lists the county's local, state, and federal revenue sources and indicates the amount of revenue collected from each source during FY 2004/05. Table 6.1 also shows the percentage distribution of total revenue received by Indian River County for each of the revenue sources. Table 6.1: Indian River County Revenue Sources (FY 2004/05) 4214,10 ederal Sources 4 y State Sources y ;Local Sources; Amount % of Total Amount % of Total Amount % of ($1,000) Revenue ($1,000) Revenue ($1,000) Total Revenue Various Grants $19,633 7.75% Local Government Half -Cent Sales Tax $8,747 3.45% Ad Valorem Taxes $74,179 29.25% Total $19,663 7.75% County Revenue $2 835 1.12% Enterprise Funds $50,238 19.81% Federal Sharing Constitutional Fuel $1,763 0.70% User Fees and $18,152 7.16% Tax Charges Special $392 0.15% County Fuel Tax $779 0.31% Assessments Alcoholic Beverage $51 0.02% Impact Fees $36,297 14.31% License Tax Pari-Mutuel Tax $447 0.18% Local Discretionary $15,583 6.14% Sales Surtax Tourist $1,676 0.66% Mobile Home $101 0.04% License Tax Development Tax Local Option Fuel $3,367 1.33% Various Grants $5,731 2.26% Tax Franchise Tax $7,941 3.13% Total State $20,454 8.06% Interest Income $4,083 1.61% Other $1,592 0.63% Total Local $213,500 84.18% Total All Sources $253,617 100% Community Development Department Source: Indian River County Finance Department. Indian River County 2 i Comprehensive Plan Capital Improvements Element Local Sources Local sources consist of revenue sources that are levied, collected and disbursed at the local level solely at the discretion of Indian River County. These local sources are shown in table 6.1, and are described in further detail below. • Ad Valorem Taxes (Property Taxes) Ad Valorem taxes are taxes levied on the assessed value (net of any exemptions) of real or personal property. This tax is commonly referred to as "property tax." Ad valorem taxes are generally assessed in mills; that is, thousandths of a dollar of assessed value. The state mandated millage cap is 10 mills per local government, excluding voted millages. In FY 2004/05, Indian River County applied an aggregate millage rate of 6.0885. The Board of County Commissioners' policies allow revenue from ad valorem taxes to be used for both operating and capital project expenditures. Table 6.1 shows that, in FY 2004/05, Indian River County collected approximately $74,179,000 in ad valorem taxes. Ad valorem taxes represented 29.25% of all revenues collected by Indian River County in FY 2004/05. Figure 6.1 displays the ad valorem tax revenue collected by Indian River County over the last six fiscal years. Over that time period, ad valorem tax revenue increased 51.25%. Community Development Department JOUCCe: lnaum Klver County Pmance llepartment Source: Indian River County Finance Department Indian River County 3 Comprehensive Plan Capital Improvements Element • Enterprise Funds Within governmental entities, various departments often exist that provide goods and services to the public in a manner similar to the private sector. Such departments, classed under the general title "enterprise funds," must raise revenues from outside the government sector. Enterprise departments assess a fee to the customer using the goods or services provided by that department. In Indian River County, the Utility System, Solid Waste Disposal District, Golf Course, Shooting Range, and Building Division are enterprises. Table 6.1 shows that enterprise fund revenue represented 19.81 % of Indian River County's total source of funds for FY 2004/05. Figure 6.2 displays the enterprise fund revenue collected by Indian River County over the last six fiscal years. Over that time period, enterprise fund revenue increased 58.37%. • User Fees and Charges User fees and charges represent revenue received by the county for providing various general services. User fees and charges are necessary because taxes alone cannot totally keep up with the increasing costs of services. This category includes fees collected by the Tax Collector's Office, the Clerk of the Circuit Court, the Property Appraiser's Office, the Sheriff's Department, and the Recreation and Parks Department. This category also includes other miscellaneous user fees charged by the county for general services not financed by other fund sources. In FY 2004/05, user fees and charges represented 7. 16% of all funds collected by Indian River County. Figure 6.3 displays user fees and charges Source: Indian River County Finance Department collected by Indian River County over the last six fiscal years. Over that time period, revenue from user fees and charges has varied, but overall, increased 92.59%. Community Development Department Indian River County 4 Comprehensive Plan Capital Improvements Element • Special Assessments Special assessments are compulsory payments levied on real property for specific benefits generated by public investments or services; the assessment levied must fairly reflect the actual costs. of the improvements. County revenues which fall under the general category of special assessments consist of street paving assessments, street lighting district assessments, as well as assessments for water, sewer, and drainage improvements. Expenditures of special assessment revenue are restricted to public improvement projects that directly benefit the property owner or payee. For example, street paving assessment revenues must be spent on paving streets that directly benefit the payer of the assessment. Special Assessment funds represented 0.15% of county funds for FY 2004/05 as shown in table 6.1. Figure 6.4 displays the revenue collected by Indian River County through special assessments over the last six fiscal years. 0 Impact Fees An impact fee is any charge, fee, or assessment levied as a condition of issuance of subdivision or site plan approval, issuance of a building permit, approval of a certificate of occupancy, or other development or construction approval when any portion of the revenues collected is intended to fund any portion of the costs of capital improvements for any public facilities. Source: Indian River County Finance Department Source: Indian River County Finance Department Since 1986, Indian River County has levied traffic impact fees on new development projects. In June of 2005, Indian River County began to levy 8 new impact fees. At the same time, the County Community Development Department Indian River County 5 Comprehensive Plan Capital Improvements Element increased the existing traffic impact fee rates. The current impact fees include: traffic, emergency services, parks and recreation, public schools, solid waste, correctional facilities, law enforcement, libraries, and public buildings. Table 6.1 shows the substantial increase in impact fee revenues related to the addition of the eight new impact fees and the increase in traffic impact fee rates. In FY 2003/04, traffic impact fees represented 5.17% of funds collected by Indian River County. In contrast, traffic impact fees and the eight additional impact fees represented 14.31 % of funds collected by Indian River County for FY 2004/05. 0 Local Discretionary Sales Surtax Local governments are authorized to levy numerous types of local discretionary sales surtaxes pursuant to s. 212.055, F.S. Under the provisions of s. 212.054, F.S., the local discretionary sales surtaxes apply to all transactions subject to the state tax imposed on sales, use, services, rentals, admissions, and other authorized transactions. The surtax is computed by multiplying the rate imposed by the county where the sale occurs by the amount of the taxable sale. This sales tax can be levied on most transactions under $5000. Under this category, Indian River County is eligible to impose a Local Government Infrastructure Surtax of either 0.5% or 1.0% and a School Capital Outlay Surtax of up to 0.5%. Currently, Indian River County imposes only the 1.0% Infrastructure Surtax. The Local Government Infrastructure Surtax must be enacted by a majority vote of the Board of County Commissioners and approved by voters in a countywide Figure 6.6: Local Discretionary Sales Su rtax $18,000 $16,000 $15,583 $14,000 $12,850 $12,000 $tows $tt,,az $11,400 $11,678 $10,000 $8,000 $6,000 $4,000 $2,000 2000 2001 2002 2003 2004 2005 Revenue (in thousands) Source: Indian River County Finance Department referendum: This surtax, which may be imposed for a maximum period of fifteen years, was initiated by Indian River County in April, 1989, and was renewed by voters in November, 2002. Generally, the proceeds must be expended to finance, plan, and construct infrastructure; to acquire land for public recreation or conservation or protection of natural resources; and to finance the closure of local government-owned solid waste landfills that are already closed or are required to close by order of the Department of Environmental Protection. Community Development Department Indian River County 6 Comprehensive Plan Capital Improvements Element Table 6.1 shows that local sales surtax revenue represented 6.14% of all funds collected by Indian River County in FY 2004/05. Figure 6.6 displays the Local Discretionary Sales Surtax revenue received by Indian River County over the last six fiscal years. This local revenue source increased by 47.76% over that period. Distribution of surtax proceeds is based on the specifics of an interlocal agreement or through a formula based on population. Local Infrastructure Surtax revenue from Indian River County is distributed to county government and municipal governments through a formula based on population. Twenty-four of the sixty-seven Florida counties levy a Local Government Infrastructure Surtax. Within Indian River County's region, Brevard, Palm Beach, and St. Lucie counties do not levy the surtax, while Martin County has levied the infrastructure surtax. Okeechobee County is eligible to levy the infrastructure surtax, but instead levies a Small County Surtax of 1 %, which is another local discretionary sales surtax. Tourist Development Tax Any county in the state may, subject to a vote of the citizenry, impose a Tourist Development Tax. The transient rental trade is the primary base for the levy of the tourist tax. Any lodging agreement for six months or less is subject to the tax. The tourist tax levy is generally one or two percent. Counties may set an additional one percent above the original tax through an extraordinary vote of the governing board or by referendum. Currently, Indian River County imposes the original two percent tourist tax as well as an additional one percent tax. Fifty-seven Florida counties out of sixty-seven total counties currently levy a tourist tax. Of those fifty - Source: Indian River County Finance Department seven counties, thirty-five counties, including Indian River County, impose an additional one percent tourist tax. Table 6.2 displays the tourist taxes imposed in counties that are geographically proximate to Indian River County. Compared to neighboring counties, Indian River County imposes a similar level of Community Development Department Indian River County 7 Comprehensive Plan Capital Improvements Element tourist taxes. Brevard, Indian River, Palm Beach, and St. Lucie Counties have the highest tourist tax levy of the six counties listed. Martin County has the lowest tourist tax levy. Table 6.2: Optional Tourist Taxes on Transient Rental Facilities Professional Additional Original Additional Sports Professional Maximum Total % County Tourist Tax Franchise Sports ° Potential /o Levy Tax Facility Tax Franchise Levy Tax Brevard 2.00% 1.00% 1.00% ---------- 5.00% 4.00% Indian River 2.00% 1.00% 1.00% ---------- 5.00% 4.00% Martin 2.00% --------- ------ ---- ---------- 3.00% 2.00% Okeechobee 2.00% 1.00% ---------- ---------- 4.00% 3.00% Palm Beach 2.00% 1.00% 1.00% ---------- 5.00% 4.00% St. Lucie 2.00% 1.00% 1.00% 1.00% 5.00% ✓ - indicates those counties eligible to impose a particular tax Source: Local Government Financial Information Handbook, April 2004. The Local Option Tourist Tax can be used for the following purposes: (1) Acquire, construct, operate, and promote one or more publicly owned and operated convention centers, such as sports stadiums, coliseums, or auditoriums within the district that the tax is imposed; (2) Promote and advertise tourism nationally, internationally, and in the State of Florida; (3) Fund convention bureaus and other tourist information bureaus as county agencies or by contract with the Chamber of Commerce or similar associations in the county; (4) Finance beach development and restoration as well as shoreline protection and restoration of inland lakes and rivers to which there is public access; (5) Construct, improve, maintain, and promote museums, zoos, fishing piers, or nature centers which are publicly owned and operated either by the county or a not-for-profit organization which opens the facilities to the public (applicable to those counties with a population less than 500,000); Community Development Department Indian River County 8 Comprehensive Plan Capital Improvements Element (6) Pledge the revenues to secure and liquidate revenue bonds issued by the county, subject to certain limitations. Figure 6.7 shows the Tourist Development Tax revenue received by Indian River County over the last six fiscal years. Over that time period, tourist tax revenue received by Indian River County fluctuated based on market conditions, but had an overall increase of 50.45%. a Local Option Fuel Tax Local governments are authorized to levy up to twelve cents of local option fuel taxes in the form of three separate levies. These levies are: ➢ a one to six cent local option fuel tax; ➢ a one to five cent local option fuel tax; and ➢ a ninth cent fuel tax. Indian River County currently imposes the full six cents of the one to six cent fuel tax. This tax applies to every net gallon of motor and diesel fuel sold within a county. The one to six cent fuel tax may be authorized by an ordinance adopted by a majority vote of the governing body or Source: Indian River County Finance Department voter approval in a county -wide referendum. Generally, the proceeds may be used to fund transportation expenditures. Table 6.1 shows that local option fuel tax revenue represented 1.33% of all funds collected by Indian River County for FY 2004/05. Figure 6.8 shows that local option fuel tax revenue for the county has increased overall by 17.65% over the last six fiscal years, with a significant increase occurring in FY 2001/2002, and then a moderation in FY 2002/2003. That large increase in FY 2001/2002 shown in Figure 6.8 can be attributed to a delay in the county distributing funds to the municipalities. Because of a dispute over allocations, money from the prior fiscal year was held until the dispute was resolved. All sixty-seven Florida counties levy a portion of the original local option fuel tax. Sixty-five counties levy the full $0.06, while the remaining two counties levy a portion of the tax. Community Development Department Indian River County 9 Comprehensive Plan Capital Improvements Element Table 6.3 shows the local fuel taxes levied in Indian River County and in other counties in the region. Saint Lucie, Martin, and Palm Beach counties levy the highest fuel taxes at $0.12 per gallon. Those three counties along with Okeechobee County impose the Ninth Cent Fuel Tax. Indian River County is eligible to levy the Ninth -Cent Fuel Tax either by extraordinary vote of the Board of County Commissioners or by voter approval in a countywide referendum, but does not currently levy the tax. Forty-three of the sixty-seven Florida counties levy the Ninth -Cent Fuel Tax. Table 6.3: Local Fuel Tax Rates County One to Six Cent Local Option Fuel Tax One to Five Cent Local Option Fuel Tax Ninth Cent Fuel Tax Total Local Fuel Tax Brevard $0.06 -------- -------- $0.06 Indian River $0.06 -------- -------- $0.06 Martin $0.06 $0.05 $0.01 $0.12 Okeechobee $0.06 -------- $0.01 $0.07 Palm Beach $0.06 $0.05 $0.01 $0.12 St. Lucie $0.06 $0.05 1 $0.01 $0.12 Source: Local Government Financial Information Handbook, April 2004. As shown in table 6.3, three counties in the region, Martin County, Palm Beach County, and St. Lucie County, levy a portion of the One to Five Cent Local Option Fuel tax. This second local option fuel tax is a one to five cent levy upon every net gallon of motor fuel sold in a county. Indian River County can levy this second tax through an ordinance adopted by a majority plus one vote of the Board of County Commissioners or by voter approval in a countywide referendum, but does not concurrently levy the tax. Sixteen of the sixty-seven Florida counties impose at least a portion of the One to Five Cent Local Option Fuel Tax. Community Development Department Source: Indian River County Finance Department Indian River County 10 Comprehensive Plan Capital Improvements Element • Franchise Fee/Tax Counties and municipalities may exercise their home rule authority to impose a fee upon a utility for the grant of a franchise and the privilege of the utility using the local government's rights-of-way to conduct the utility's business. Franchise fees are typically levied through a franchise agreement negotiated between the local government and the utility provider. Indian River County receives franchise revenue from electric, water, sewer, garbage, and cable television franchises. Table 6.1 shows that franchise fee revenue represented 3.13% of all funds collected by Indian River County in FY 2004/05. Figure 6.9 shows that over the last six fiscal years franchise fee revenue collected by Indian River County increased 41.42%. Other Miscellaneous Revenue Included in this category are various administrative fees, licenses and permits, fines, interest income, rental income, private contributions, and other miscellaneous revenues. This source of revenue for Indian River County represented 0.63% of all funds collected by Indian River County in FY 2004/05. Borrowing The county uses borrowing as a financing vehicle to raise money for public purposes that are beyond the realm of current cash reserves, operating revenue and reasonable taxation. Borrowing money to pay for capital improvements can be done through either short-term or long-term financing. Short term financing is usually accomplished by the use of bond pools, notes, private placements with banks, and the public placement of Voted General Obligation debt. Long term financing is usually achieved throu&the issuance of bonds sold on the public market. The county may sell bonds for capital improvements without a referendum of the voters if the pledge used for the bond is a non -ad valorem revenue source. Conversely, any bond issue pledging ad valorem taxes requires approval through a voter referendum. General Obligation Bonds are bonds that are secured by the full faith and credit of the county. These bonds are secured by a pledge of the issuer's ad valorem taxing power. According to state law, the amount of ad valorem taxes necessary to pay the debt service on general obligation bonds is not subject to the constitutional property tax millage limits. Such bonds constitute debts of the issuer and require approval through a voter referendum prior to issuance. Revenue bonds are bonds payable from a specific source of revenue, where the full faith and credit of the issuer is not pledged to repay the bonds. Because revenue bonds are payable from identified sources of revenue, bond holders may not compel taxation or legislative appropriation of funds for payment of debt service. Pledged revenues may be derived from operation of financed projects, Community Development Department Indian River County 11 Comprehensive Plan Capital Improvements Element grants and excise, or other specified non -ad valorem taxes. A public referendum is not required prior to issuance or validation of such obligations. The county has issued revenue bonds to finance improvements to its sanitary sewer, potable water, and golf course facilities. Revenue bonds have been issued by the Housing Authority to help finance the provision of more low-income housing units in the county. Also, revenue bonds have been issued to finance the cost of construction of various capital improvement projects. Deposits from bond revenues are put into the respective bond fund accounts for these projects, whereby funds are specifically designated for a particular project, and user charges are used to pay off the debt. Special assessment bonds are bonds issued to pay for capital improvements that impact specific areas or groups of property owners. Proceeds from the assessments levied against benefiting property owners are used to pay off the bond debt. The issuance of these bonds does not need to be approved by voter referendum. Revenue bonds and special assessment bonds are similar in nature, except that special assessment bond debt is paid -off by assessments levied against benefiting property owners and not from ongoing user charges. The county has issued special assessment bonds for solid waste disposal. The issuance of tax anticipation or bond anticipation notes is an example of a short-term (less than five years) method of financing. Notes usually have higher interest rates than bonds and have shorter maturity dates than bonds. Tax anticipation notes are issued in advance of a new fiscal year to cover gaps in the budget before property taxes are received, while bond anticipation notes are issued in anticipation of the receipt by the county of proceeds from the sale of corresponding future bond issues. The county currently has no outstanding tax or bond anticipation notes. • Additional Optional Local Revenue Sources Use of additional revenue sources may occasionally be necessary, depending on priorities mandated by the Board of County Commissioners and the availability of existing revenue sources. Indian River County has two options to increase local revenues. These are to implement new taxes that are permitted by state regulation and/or to increase existing taxes and fees that are imposed by the county. Additional local revenue sources available to Indian River County include the Ninth Cent Fuel Tax, the One to Five Cent Local Option Fuel Tax, and the Professional Sports Franchise Facility Tax. Both the Ninth Cent Fuel Tax and the One to Five Cent Local Option Fuel Tax are taxes on the purchase of fuel. With the Ninth Cent Fuel Tax, a one cent per gallon tax on motor fuel and special fuel can be levied on fuel purchases in the county. Revenue from the Ninth Cent Fuel Tax may be shared with municipalities, but counties are not required by law to share the proceeds. Authorized uses for revenue collected from the Ninth Cent Fuel Tax include paying the costs and expenses of establishing, operating, and maintaining a transportation system and related facilities. Additional uses include funding the acquisition, construction, reconstruction, and maintenance of roads. Community Development Department Indian River County 12 Comprehensive Plan Capital Improvements Element The One to Five Cent Local Option Fuel Tax is a one to five cents tax that can be levied upon every gallon of motor fuel sold in Indian River County. Revenues from this fuel tax must be shared among all eligible jurisdictions in the county as a result of an interlocal agreement or by an historical transportation expenditures formula. Authorized uses for revenue collected from the One to Five Cent Fuel Tax include transportation expenditures needed to meet the requirements of the Capital Improvements Element of the Comprehensive Plan. A Professional Sports Franchise Facility Tax is a levy of up to 1 % on any lodging agreement for six months or less, within Indian River County. Revenue from this tax may be used to pay the debt service on bonds issued to finance the construction, reconstruction, or renovation of a professional sports franchise facility. State Sources Revenue classified as state sources may be generated locally but collected by the state and returned to the county. For example, state sources may originate from state general revenues and be shared by the state according to state revenue allocation formulas. Table 6.1 displays the state revenue sources applicable to Indian River County. These sources are described in further detail below. • Local Government Half -Cent Sales Tax The Local Government Half Cent Sales Tax Program allocates 8.814% of net sales tax proceeds remitted by sales tax dealers in a county to a special account administered by the Department of Revenue; this account is the Local Government Half Cent Sales Tax Clearing Trust Fund. These funds are then earmarked for distribution to the governing body of the county and each municipality within the county. Distribution of these monies within the county is determined by a formula that uses a weighting factor based on the population of the incorporated and unincorporated areas and multiplies this factor by 8.814% of the sales tax proceeds received for the county. In FY 2004/05, Indian River County received $8,747,000 through the half -cent sales tax. As shown in Source: Indian River County Finance Department table 6. 1, that amount represented 3.45% of all funds collected by Indian River County during the 2004/05 fiscal year. Community Development Department Indian River County 13 Comprehensive Plan Capital Improvements Element Figure 6.10 displays the funds made available to Indian River County through the half -cent local government sales tax over the last six fiscal years. Over those six fiscal years, Indian River County's half -cent sales tax revenue increased 40.97%. Occasionally, governments can receive supplemental distributions by meeting special eligibility criteria; however, in no case can the total supplemental and ordinary distribution exceed the maximum per capita amount allowed by law. Governments are allowed wide latitude in using the half cent sales tax. For counties, the law provides only that half cent sales tax revenue be used for countywide tax relief or countywide programs. • County Revenue Sharing The current structure of the county revenue sharing program consists of two revenue sources. These sources include 2.90% of net cigarette tax collections and 2.25% of sales and use tax collections. Proceeds are collected Source: Indian River County Finance Department by the state and then distributed to eligible counties based on an allocation formula. There are no use restrictions on the distributed revenue; however, there are some statutory limitations regarding these funds being used as a pledge for indebtedness. To receive distribution proceeds through the county revenue sharing program, counties must meet the following criteria: (1) That law enforcement officers and firefighters are certified and meet state requirements; (2) That certification of taxable value for a property tax levy is made in a timely and correct manner to the Department of Revenue; Source: Indian River County Finance Department Community Development Department Indian River County 14 Comprehensive Plan Capital Improvements Element (3) That the county's most recent financial reports have been sent to the Department of Banking and Finance, and post audits of these statements and accounts have been provided. Table 6.1 shows that county revenue sharing funds represented 1.12% of all funds collected by Indian River County in FY 2004/05. Figure 6.11 shows that, over the last six fiscal years, county revenue sharing proceeds received by Indian River County varied over time, but overall increased by 2.87%. • Constitutional Fuel Tax Constitutional fuel tax is defined as an excise or license tax of two cents per gallon imposed upon the first sale or first removal from storage (after importation into Florida) of motor fuel. Revenues from this levy become state funds at the time of collection by the refiner, importer or wholesaler. In its current form, the constitutional fuel tax is a state -shared revenue source for counties only. Applying a distribution formula, the state allocates proceeds to counties'to the extent necessary to comply with all obligations to or for the benefit of holders of bonds, revenue certificates, and tax anticipation certificates or any refunds secured by any portion of the tax proceeds. After complying with the necessary debt service obligations, the state distributes a county's surplus funds to its governing body. Table 6.1 shows that revenue received from the constitutional fuel tax levy represented 0.70% of total revenue received by Indian River County in FY 2004/05. Figure 6.12 shows that, over the last six fiscal years, constitutional fuel tax revenue received by Indian River County increased 21.42%. • County Fuel Tax The county fuel tax is levied on motor fuel at the rate of one cent per net gallon. The legislative intent of this tax is to reduce a county's reliance on ad valorem taxes. Funds received from this tax can be used by a county for transportation -related expenses, including the reduction of bond indebtedness incurred for transportation purposes. Community Development Department Source: Indian River County Finance Department Indian River County 15 Comprehensive Plan Capital Improvements Element Table 6.1 shows that funds received through the county fuel tax levy represented 0.31 % of all revenue collected by Indian River County in FY 2004/05. Figure 6.13 shows that, over the last six fiscal years, county fuel tax revenue received by Indian River County increased 20.22%. • Alcoholic Beverage License Tax Alcoholic beverage license taxes are levied on manufacturers, distributors, vendors, and sales agencies of alcoholic beverages in Florida. The tax is administered, collected, enforced, and distributed to local governments by the Division of Alcoholic Beverages and Tobacco within the Department of Business and Professional Regulation. Twenty-four percent of the license taxes imposed on the sale of beer, wine and liquor collected within a county is returned to the county Tax Collector. The remaining funds are used to operate the division and contribute to the operation ofthe Office of the Secretary of Business Regulation. Table 6.1 shows that the county received approximately $51,000 from this tax in FY 2004/05, 0.02% of all revenue received by Indian River County. Figure 6.14 shows that, over the last six fiscal years, alcoholic beverage license tax revenue received by Indian River County fluctuated, but overall remained about the same. • Pari- Mutuel Tax Revenue generated through license fees and taxes related to Pari-Mutuel betting is deposited into the Pari-Mutuel wagering trust fund. According to Florida Statutes, a guaranteed entitlement of $29,915,500 is deducted from the trust fund for equal distributions among Florida's sixty-seven counties, providing each county's general revenue fund with $446,500. Table 6.1 shows that revenue received from the Pari- Mutuel tax represented 0.18% of revenues received by Indian River County in FY 2004/05. ' Uses for this revenue are determined by the Board of County Commissioners. Source: Indian River County Finance Department • Mobile Home License Tax An annual license tax is levied on all mobile homes and park trailers, and on all travel trailers and fifth -wheel trailers exceeding thirty-five feet in body length. The license taxes, ranging from $20 to Community Development Department Indian River County 16 Comprehensive Plan Capital Improvements Element $80 depending on body length, are collected in lieu of ad valorem taxes. The taxes are collected by the county tax collectors and remitted to the Department of Highway Safety and Motor Vehicles. From each license, $1.50 is deducted by the Department of Highway Safety and Motor Vehicles. The remaining balance is deposited into the License Tax Collection Trust Fund for distribution to units of local government. A county government is eligible to receive proceeds from this tax if taxable mobile home units are located in its unincorporated area. An authorized use of the proceeds is not specified in the current law. Table 6.1 shows that funds received through the mobile home license tax represented 0.04% of all revenue received by Indian River County in FY 2004/05. Figure 6.15 shows that, over the last six fiscal years, mobile home license tax revenue received by Indian River County decreased overall by 24.63%. Various Grants Source: Indian River County Finance Department Table 6.1 shows that funds received in the form of state grants represented 2.26% of funds received by the county in FY 2004/05. State grant funds received by the county in FY 2004/05 originated from the State of Florida Department of Community Affairs, the Florida Housing Finance Corporation, the State of Florida Department of Environmental Protection, the State of Florida Department of State Division of Library and Information Services, the State of Florida Department of State Division of Historical Resources, the State of Florida Department of Transportation, , the State of Florida Commission for the Transportation Disadvantaged, the State of Florida Department of Management Services, the State of Florida Department of Revenue, the Department of Health and Rehabilitative Services, the Department of Agriculture and Consumer Services, and the Florida Fish and Wildlife Conservation Commission. Federal Sources Federal funds are either granted directly to local governments or passed through state agencies for administration and monitoring. These grants are usually distributed on a competitive basis rather than by formula allocations, thereby making projections of future revenues difficult. For the purpose of revenue projections, these sources will be assumed to remain constant. Community Development Department Indian River County 17 Comprehensive Plan Capital Improvements Element The county received approximately $19,663,000 in federal funds during FY 2004/05. These funds represented 7.75% of all funds received by Indian River County in FY 2004/05. Overall Revenue Sources As mandated by state statute, the financial resources of the county are categorized according to the state Chart of Accounts. These categories include taxes, licenses and permits, intergovernmental revenue, charges for services, fines and forfeitures, interest, and miscellaneous revenues. Table 6.4 identifies the total amount of historic revenue generated from these sources for fiscal years 1999/2000 through 2004/05. Source: Indian River County Comprehensive Annual Financial Report, 2005 Figure 6.16 displays the distribution of revenue by the same categories listed in table 6.4 for each of the last six fiscal years. Figure 6.16: Distribution of General Revenues By Category 2003 58.64% 0.39% 23.98% 6.61% 9.32% 1.08% E] Taxes p Charges for Services 2004 62.27% 9.47% 0.67% 0.98% 9.30% 17.31% Licenses & Permits ■ Fines & Forfeitures 2005 51.14% 0.67% 17.69% .92% 20.73% 0.84°l0 ❑ Intergovernmental Re\enue [gMiscellaneous Re\enues Community Development Department Indian River County 18 Table 6.4: Indian River County General Revenues By Source Fiscal YearES691537,158 Licenses &Permits Intergovernmental Revenue Charges for Services Fines & Forfeitures Miscellaneous Revenues Totals 99/2000 $520,813 $18,908,166 $9,425310 $1,332,950 $11,338,449 $111,062,846 2000/01 $493,585 $18,764,102 $11,037,594 $I 251098 $14,727,979 $119,827983 2001/02 $515,653 $20,802,982 $11,368,399 $1,421,542 $11,600,449 $126,197,368 2002/03 $86,120,084 $567,403 $35,213,140 $13,683,108 $1,584,737 $9,703,817 $146,872,289 2003/04 $95,675,370 $1,033,394 $26,588,303 $14,282,587 $1,508,786 $14,545,961 $153,634,401 2004/05 $104,012,925 $1,354,282 $35,973,818 $18,151,546 $1,715,875 $42,170,294 $203,378,740 Source: Indian River County Comprehensive Annual Financial Report, 2005 Figure 6.16 displays the distribution of revenue by the same categories listed in table 6.4 for each of the last six fiscal years. Figure 6.16: Distribution of General Revenues By Category 2003 58.64% 0.39% 23.98% 6.61% 9.32% 1.08% E] Taxes p Charges for Services 2004 62.27% 9.47% 0.67% 0.98% 9.30% 17.31% Licenses & Permits ■ Fines & Forfeitures 2005 51.14% 0.67% 17.69% .92% 20.73% 0.84°l0 ❑ Intergovernmental Re\enue [gMiscellaneous Re\enues Community Development Department Indian River County 18 Comprehensive Plan Capital Improvements Element Expenditures In the previous sub -section, the various revenue and income sources currently utilized by Indian River County were reviewed. This sub -section of the Capital Improvements Element identifies how those monies are allocated to meet the county's needs. Table 6.5 presents the county's overall general expenditures by category for fiscal years 1999/2000 through 2004/05. Table 6.5: Indian River County General Government Expenditures By Function Fiscal Year 1999/2000 2000/01 2001/02 2002/03 2003/04 2004/05 General Government $14,665,306.00 $15,799,857.00 $20,228,495.00 $23,785,570.00 $26,473,300.00 $26,797,183.00. Public Safety $40,893,105.00 $42,891,194.00 $45,352,323.00 $47,565,048.00 $55,792,130.00 $57,161,390.00 Physical Environment $4,947,965.00 $2,254,447.00 $2,667,619.00 $18,587,122.00 $3,305,670.00 $4,573,196.00. Transportation $13,415,177.00 $13,408,736.00 $22,729,769.00 $20,120,969.00 $23,038,234.00 $22,369,128.00 Economic Environment $259,354.00 $302,580.00 $347,096.00 $583,850.00 $627,914.00 $712,517.00 Human Services $4,928,117.00 $5,746,410.00 $5,832,441.00 $6,540,673.00 $7,197,342.00 $7,279,582.00 Culture/Recreation $12,006,079.00 $21,945,498.00 $19,323,355.00 $23,253,841.00 $15,022,196.00 $21,359,218.00 Court Related $4,565,674.00 $5,323,388.00 $5,802,798.0 $5,998,260.00 $6,210,614.00 $5,630,734.00 Debt Service $6,195,738.00 $1,859,710.00 $3,850,379.00 $4,520,637.00 $3,727,534.00 $3,495,500.00 TOTAL $101,876,515.00 $109,531,820.00 $126,134,275.00 $150,955,970.00 $141,394,934.00 $149,378,448.00 Source: Indian River County Comprehensive Annual Financial Report, 2005 Table 6.5 shows expenditures in rune categories. Depending on the county's activities in any given fiscal year, the level of expenditures may fluctuate for certain categories. Figure 6.17 displays the percentage distribution of IndianRiver County's general expenditures over the last six fiscal years. General Government A major classification of services provided by Indian River County, the general government expenditure category, includes activities undertaken by the legislative and administrative branches of the county government. Departments such as the Board of County Commissioners, County Administrator, Personnel, and Purchasing fall into this category as do all Constitutional Officers, except the Sheriff. As shown in table 6.5, $26,797,183was spent on general government services in FY 2004/05. Between fiscal years 2003/04 and 2004/05, general government expenditures increased by 1.22%. General government services represented 17.94% of all county expenses in FY 2004/05. Community Development Department Indian River County 19 Comprehensive Plan Capital Improvements Element Public Safety The Sheriff's Department, Fire Services, Advanced Life Support, Emergency Management, and the Medical Examiner fall under the category of Public Safety. As shown in table 6.5, the county, in FY 2004/2005, spent $57,161,390.00 for public safety services,. Between fiscal years 2003/04 and 2004/05, public safety expenditures increased by 2.45%. Since FY 1999/2000, public safety expenditures have increased by 39.78%. Public safety represented 38.27% of all county expenses in FY 2004/05. Physical Environment This classification encompasses the county's water and waste water utilities, the Solid Waste Disposal District (S WDD), the Soil Conservation District, and the Environmentally Sensitive Land Acquisition Fund. Table 6.5 shows that $4,573,196.00 was spent on these activities in FY 2004/2005. Between fiscal years 2003/04 and 2004/05, physical environment expenditures increased by 38.34%. Since FY 1999/2000, physical environment expenditures have decreased by 7.57%. Physical environment services represented 3.06% of all county expenses in FY 2004/05. Transportation Departments under this category include Road and Bridge, County Engineering, Secondary Roads Construction, and . Traffic Engineering. These departments are responsible for designing, constructing, overseeing, and maintaining the county's roads and drainage systems. As shown in table 6.5, the county spent $22,369,128.00 on transportation facilities in FY 2004/05. Since FY 1999/2000, transportation expenditures have increased by 66.74%. Transportation expenses represented 14.97% of all county expenses in FY 2004/05. Economic Environment Included in this category are the costs of providing services, which develop and improve the economic condition of the community and its citizens. Veteran Services, the Housing Authority, and the Economic Development Division of the Indian River County Chamber of Commerce undertake this function. Table 6.5 shows that those agencies spent $712,517.00 on economic environment services in FY 2004/05. Between fiscal years 2003/04 and 2004/05, economic environment expenditures increased by 13.47%. Since FY 1999/2000, economic environment expenditures have increased by 174.73%. Economic environment expenses represented 0.48% of all county expenses in FY 2004/05. Human Services Human Services cover the cost of providing services for the care, treatment, and control of human illness, injury or disabilities, and for the welfare of the community as a whole and its individuals. The Community Development Department Indian River County 20 Comprehensive Plan Capital Improvements Element Health Department, Welfare, Medicaid, and Children's Services fall into this category. Table 6.5 shows that the county spent $7,279,582.00 on human services in FY 2004/05. Between fiscal years 2003/04 and 2004/05, human services expenditures increased by 1.14%. Since FY 1999/2000, human services expenditures have increased by 47.72%. Human services represented 4.87% of all county expenses in FY 2004/05. 2003 31.5% 123% 15.6 k 13.3% 3'p 15.4% 0.4h 4. p General Government Transportation M Culture/Recreation Culture/Recreation 2004 38.5% 2"%23% 5.1• 16.3•.6 4.4% 0.4% 10.6% • Public Safety ■ Economic Environment ® Court Related 2005 36.3% 3.1 % 2 )3. 14.3% �150°h 4. MIA 0.5% []Physical Environment ® Human Services Debt Service All costs associated with providing and maintaining cultural and recreational facilities and activities for the benefit of citizens and visitors fit into this category. County libraries, parks, recreation operations, and the golf course are included here. As shown in table 6.5, the county spent $21,359,218 on these services in FY 2004/05. Between fiscal years 2003/04 and 2004/05, cultural/recreation expenditures increased by 42.18%. Since FY 1999/2000, cultural/recreation expenditures have increased by 77.90%. Culture/recreation expenses represented 14.30% of all county expenses in FY 2004/05. Court Related All costs of operating the judicial branch of Indian River County Government are classified here. This category includes the County Court, Circuit Court, State Attorney's Office and Public Defender. As shown in table 6.5, expenditures from this category totaled $5,630,734.00 in FY 2004/05. Between fiscal years 2003/04 and 2004/05, Court Related expenditures decreased by 9.34%. Community Development Department Indian River County 21. Comprehensive Plan Capital Improvements Element Beginning in FY 1997/1998, the State of Florida mandated that the county begin recording Court Related costs as a separate expenditure item. Court Related costs represented 3.77% of all county expenses in FY 2004/05. Debt Service Debt service consists of interest and payments made by the county on its debt. This figure includes principal retirement, interest and other miscellaneous debt service. As table 6.5 indicates, total county debt service expenditures were $3,495,500.00 in FY 2004/05. Between fiscal years 2003/04 and 2004/05, debt service expenditures decreased by 6.22%. Since FY 1999/2000, debt service expenditures have decreased by 43.58%. Debt service expenses represented 2.34% of all county expenses in FY 2004/05. Existing Outstanding Debt At the end of FY 2004/05, Indian River County's outstanding debt, comprised mostly of revenue bonds, stood. at $108,545,000. This is shown in table 6.6. In 1993, the county took advantage of lower interest rates and refunded any debt that had reasonable future economic savings. Enterprise Funds support 84.6% of the overall debt (Utility Dept 76.7%; and Golf Course 7.8%), leaving only $16,050,000 in bonds paid from general governmental funds. In November 2001, Indian River County issued the remaining $11,000,000 of the $26,000,000 voter approved Environmentally Sensitive Land Acquisition general obligation bonds. This is the most recent bond series issued by Indian River County. Also in 2001, the County issued $16,810,000 in Spring Training Facility Bonds to finance the acquisition and expansion of the Dodgertown spring training facility. Finally, two bonds were refinanced in 2003 to take advantage of lower interest rates: the 1993 Series Refunded Recreational Revenue Bonds and the 1995 Series Environmental Lands Acqusition Bonds. Community Development Department Indian River County 22 Comprehensive Plan Capital Improvements Element Table 6.6: Indian River County Existing Long Term Debt Amount Average Initial Remaining Interest Final Bond Rating Amount 09un J30/04 Rate Maturity Security Pledge Water & Sewer Revenue Bonds: 1993 A Series $47,190,000 $37,515,000 5.76% 2024 AAA/FDIC Water & Sewer (Insured) Revenues 1996 Series $38,900,000 $33,390,000 5:75% 2026 AAA/FDIC Water & Sewer (Insured) Revenues Recreation Revenue Bonds Golf Course Net 2003 Series Income, Race Track Refunding $6,455,000 $6,045,000 3.65% 2016 AAA/AMAC Revenues and Recreational (Insured) Subordinate Lien on Revenue One Half Cent Sales Tax Spring TrainingState AA/F AGIC payments, fourth cent tourist Facility Revenue $16,810,000 $15,515,000 4.870% 2031 (Insured) development tax, and Bonds half -cent sales tax Voted G.O. Bonds Environmental Lands $7,800 000 $6,765,000 2.050% 2010 /`SMAC �(Insured) General Obligation Acquisition 2003 Series Environmental $11,000,000 $9,315,000 3.890% 2016 AAA/FSA General Obligation Lands Total Bonds $108,545,000 Outstanding Source: Indian River County Budget 2004/05. Local Policies and Practices As part of the capital improvements planning process, it is important to do an inventory of current Indian River County policies and practices that guide the timing, location, expansion, or increase in capacity of capital facilities. These policies and practices relate to the county's existing level -of - service standards, impact fee programs, the existing comprehensive plan, and enterprise fund accounts. Community Development Department Indian River County 23 Comprehensive Plan Capital Improvements Element Existing Level -of -Service Standards Level -of -service (LOS) standards are indicators of the extent or degree of service provided by, or proposed to be provided by, a facility based on and related to the operational characteristics of the facility. Level -of -service standards indicate the capacity per unit of demand of each public facility. Level -of -service standards can affect the timing and location of development by guiding development to • areas where facilities may have excess capacity. Indian River County has level -of -service standards for capital facilities as follows: ➢ Correctional Facilities (Countywide) • 4.5 beds per 1,000 permanent plus weighted peak seasonal population ➢ Fire/EMS (Countywide, excluding Indian River Shores) • .089 Stations per 1,000 permanent plus weighted peak seasonal population ➢ Law Enforcement (Unincorporated County) • 2.09 officers per 1,000 permanent plus weighted peak seasonal population ➢ Libraries (Countywide) • 580 building square feet per 1,000 permanent plus weighted peak seasonal population • 3,200 library material items per 1,000 permanent plus weighted peak seasonal population • 0.7 computers per 1,000 permanent plus weighted peak seasonal population • 0.2 other library equipment items per 1,000 permanent plus weighted peak seasonal population ➢ Potable Water (County Service Area) • 250 gallons per day per equivalent residential unit ➢ Public Buildings (Countywide) • 1.99 building square feet per capita for permanent plus weighted peak seasonal population ➢ Parks/Recreation (Unincorporated County) • 6.61 acres per 1,000 permanent plus weighted peak seasonal population ➢ Sanitary Sewer (County Service Area) • 250 gallons per day per equivalent residential unit ➢ Schools (Countywide) • 139.07 building square foot per student station (Weighted Average) • 144.71 building square foot per student station (Elementary School) • 117.26 building square foot per student station (Middle School) Community Development Department Indian River County 24 Comprehensive Plan Capital Improvements Element • 147.57 building square foot per student station (High School) ➢ Solid Waste (Countywide) • 2.2 tons per capita per year or 3.67 cubic yards per capita for permanent plus weighted peak seasonal population per year ➢ Stormwater Management • New drainage systems shall mitigate the impacts of a 25 year/24 hour design rainfall event • Minimum road crown elevation for existing roads shall be raised during resurfacing/rebuilding to the flood elevation resulting from the 2 year/24 hour storm event on local roads • The center two lanes of rebuilt roads must be at or above flood levels resulting from a 10 year/24 hour storm event on Arterial and Collector roads • All drainage basins will meet the following level -of -service standards: • By 2000 - 2 year/24 hour storm event By 2005 - 5 year/24 hour storm event By 2010 - 10 year/24 hour storm event ➢ Transportation (Roadways) ➢ Transit Level -of -Service "D" during peak hour, peak season, and peak direction conditions on all TRIP grant funded roads as well as all freeway, arterial, and collector roadways, with the exception of the following two, which will operate at level of service `B" plus 20%: • 27th Ave — South County Line to SR 60 • 43rd Ave - Oslo Road to 16d' Street For SIS/Florida Intrastate Highway System roadways, level of service `B" is adopted for rural areas, and level of service "C" is adopted for urban areas. One-hour headways shall be maintained on all fixed transit routes Level -of -service standards are discussed in further detail in each individual Comprehensive Plan Element. Capital Improvements Program A capital improvements program (CIP) is a program for capital expenditures to be incurred each year over a fixed period of years to meet anticipated capital needs. This program identifies projects that the county plans to undertake and presents an estimate of the costs and the full resources needed to finance the projects. Community Development Department Indian River County 25 Comprehensive Plan Capital Improvements Element The Capital Improvements Element (CIE) itself consolidates the capital improvements needs of all elements of the Comprehensive Plan into an overall five-year Capital Improvements Schedule. The overall program lists the needs, costs, timeframes, priorities, and the necessary financial resources to implement the identified capital improvement projects in the various elements of the plan in the next five years. Impact Fees/Capacity Charges Impact fees are charges to developers for off-site improvements that must be provided by the local government to serve new development. This financing technique is one strategy that the county can use for implementing the CIE. Currently, the county has nine impact fees in place; these are traffic impact fees, which became effective in 1986, and eight additional impact fees which became effective in June of 2005. Those eight new impact fees are assessed for the following service delivery categories: solid waste, public schools, fire/ems, parks and recreation, correctional facilities, law enforcement, libraries, and public buildings. In October 1999, the county's water and sewer impact fees were reclassified as capacity charges. A capacity charge is a fee charged to the direct beneficiaries of improvements in order to fund the capital cost incurred by the water and wastewater utility to provide capacity to serve new utility customers. Enterprise Funds Enterprise funds are used to account for operations financed and operated in a manner similar to private business enterprises, when the intent of the governing body is that the full costs of providing the service to the general public on a continuing basis be financed or recovered primarily through user charges. Currently, the county operates its solid waste services, golf course facility, building department services, shooting range, and utility services as enterprise funds. As a tool for affecting the timing and location of development, user charges may be designated to vary with the quantity and location of the service provided. Thus, charges could be greater for providing services further from urban areas, and less for distances closer to urban areas. In this way, user charges could affect the economics of development locating further away from urban areas. Analysis The analysis section of this element analyzes the county's historic and projected revenue and expenditure patterns to assess the county's fiscal ability to provide adequate capital improvements. These capital improvements have been identified in other comprehensive plan elements and are needed to meet the demands of existing and future development. As part of this analysis, revenue and expenditure projections are identified and analyzed, and a fiscal assessment of needs (costs) versus projected available revenue is included. Community Development Department Indian River County 26 Comprehensive Plan Capital Improvements Element Analysis of the Timing and Location of Capital Improvements Objectives and polices from the Future Land Use Element, Potable Water Sub -Element, Sanitary Sewer Sub -Element, Recreation and Open Space Element, and the Transportation Element, as well as policies followed by the Sheriff's office and County departments such as Emergency Management, Corrections, Libraries, and Solid Waste, have the most direct effect on the timing and location of capital improvements. Through planning for future improvements to the transportation system, the Transportation Element directly affects the development potential of property. Also affecting the development potential of property are the water and sewer connection requirements. Within the Future Land Use Element (FLUE), the assignment of land use density and intensity, as well as the urban service area regulations, affect the timing and location of capital improvements. Using the FLUE and urban service area requirements in the county's comprehensive plan to plan for the provision of public facilities and services promotes compact development by emphasizing infill development in urban areas and maximizes the efficiency of existing facilities and services in under utilized areas. The FLUE also controls urban sprawl and ensures that adequate facilities will be present consistent with future growth. Maximizing the use of existing facilities and controlling urban sprawl will contribute to a cost-effective and efficient service delivery system. Using the county's official Future Land Use Map and Future Thoroughfare Plan Map, as well as the county's water and wastewater connection matrix, in planning for future locations of facilities will provide for efficient and orderly expansion of public facilities, provide for efficient growth in desired areas, discourage growth in undesirable areas, and protect environmentally sensitive lands. Development orders will be based upon the availability of adequate public facilities and services, which will provide additional support for the comprehensive plan. The objectives of the FLUE, Transportation Element, Parks and Recreation Element, Potable Water Sub -Element, and Sanitary Sewer Sub -Element will be furthered by the extension of facilities and services in a logical and efficient manner. This will be accomplished by implementing and enforcing the adopted Capital Improvements Element and its corresponding Schedule of Capital Improvements. Successful and efficient implementation of those items will ensure that facilities and services will be in place concurrent with future development. If a capital improvement project is not included in the adopted Schedule of Capital Improvements Plan and the improvement is required to maintain adopted level -of -service standards, future development will be prohibited until the necessary facilities are in place. This, in effect, indirectly controls the timing and location of future development and, in turn, furthers the implementation of the Future Land Use and Transportation Elements' objectives. Directly affecting the timing and location of future development is the county's official Future Land Use Map, which graphically portrays the maximum land use densities/intensities for the county by the year 2020. As shown on the Future Land Use Map, allowable residential land use densities in some Community Development Department Indian River County 27 Comprehensive Plan Capital Improvements Element areas are as high as ten units to the acre in the urban service area and as low as one unit per twenty acres outside the urban service area. Commercial/industrial land use areas are depicted on the Future Land Use Map along the US #I Corridor and in nodal areas located along major transportation routes and intersections. A schedule of capital improvements (Appendix A) is important to ensure that improvements to existing facilities and construction of new facilities are completed as needed. By establishing specific criteria for prioritizing projects and by scheduling projects based on projected need and available revenue, the schedule of capital improvements will ensure existing resources are properly allocated. This scheduling effort will also ensure that appropriate areas will be served by needed facilities, thus maintaining adopted levels of service. In addition to the components of this element, the county coordinates with the St. Johns River Water Management District (SJRWMD) and the various state agencies, such as the Florida Department of Transportation, when these agencies program facility or service improvements within Indian River County. The continuation of this coordination will ensure that the plans of state agencies and the SJRWMD will be consistent with the Comprehensive Plan and the timing and location of capital improvements as identified in the CIE. Needs Assessment Based on public facility requirements identified in the other comprehensive plan elements, this needs assessment identifies the capital improvements required to provide sufficient infrastructure to meet proposed levels of service for existing and new development. For purposes of the CIE, a capital improvement is a substantial facility (land, building or major equipment) that costs at least $25,000 and may be paid for in phases. Table 6.7 identifies capital improvement needs through fiscal year 2010/11 for conservation & aquifer recharge, emergency services, general services, law enforcement & corrections, recreation and open space, stormwater management, sanitary sewer and potable water, solid waste, and transportation. Appendix A provides a detailed list of projects and estimated costs for each of the comprehensive plan elements as well as adopted capital improvements of County departments. Detailed capital improvement schedules, which list each improvement project, are provided in each applicable Comprehensive Plan Element or within individual master plans for the respective governmental service. Community Development Department Indian River County 28 Comprehensive Plan Capital Improvements Element Table 6.7: Future Capital Improvement Expenditures for Indian River County Element or 2006/07 2007/08 2008/09 2009/10 2010/11 Category Conservation & Aquifer Recharge $25,370,000 $25,295,000 $20,500,000 $250,000 $250,000 Emergency Services $12,585,874 $4,752,689 $1,144,705 $1,500,000 $0 General Services $50,325,027 $940,000 $620,456 $0 $0 Law Enforcement & Corrections $22,187,436 $0 $0 $0 $0 Libraries $8,600,000 $800,000 $0 $0 $0 Recreation & Open Space $9,100,000 $2,675,000 $4,375,000 $1,575,000 $1,575,000 Sanitary Sewer & Potable Water $32,076,700 $32,877,000 $24,337,500 $16,007,500 $12,499,700 Solid Waste $8,591,500 $16,436,500 $2,941,000 $4,442,000 $259,000 Stormwater Management $12,189,000 $2,842,000 $3,647,000 $1,104,000 $5,000,000 Transportation N84 C�[rr- 12,871 $85,012,872 $52 '1�T $56.176,712 $67,335,665 $58,928,052 $48,153,240 Total 536+,538;408 $266,038,409 5138;938;900 S142,794,901 $124,901,326 $83,806,552 $67,736,940 Figure 6.18 graphically displays the projected capital improvements expenditures for the next five fiscal years. As indicated, the sum of the total projected costs for each of the elements, for the five year period is $680,922,1 $685,278,128. Some public facilities, such as public education and health systems, are provided countywide and the county itself does not have fiscal responsibility for these systems. The County, however, is required by State Statutes to provide some funds to the Indian River County Health Department (IRCHD). The Florida Department of Children and Family Services appoints the management of the IRCHD, maintains the financial records, and prepares its own financial report separate from the county. In the Future Land Use and Introductory Elements of the county's comprehensive plan, there is an analysis and description of public schools and health centers. Based on general locational criteria for public schools and health centers, it is assumed that any new facilities which may be constructed in the county by 2010/11 will be located within existing infrastructure service areas or designated expansion areas. Therefore, these systems may be considered to be adequately served by appropriate infrastructure. Community Development Department Indian River County 29 Comprehensive Plan Capital Improvements Element $90,000,000 $80,000,000 $70,000,000 $60,000,000 $50,000,000 $40,000,000 $30,000,000 $20,000,000 $10,000,000 $0 Figure 6.18: Future Capital Improvement Expenditures FY 2006/07 FY 2007/08 FY 2008/09 FY 2009/10 FY 2010/11 ■ Conservation & Aquifer Recharge []General Services Libraries 13 Sanitary Sew er & Potable Water g Storrrw ater Management Fiscal Assessment ® Emergency Services g Law Enforcement & Corrections M Recreation & Open Space g Solid Waste E] Transportation This section examines the county's ability to fund the capital improvements listed in table 6.7, and assesses whether sufficient revenue will be available within the existing budgeting framework utilized by the county to fund the needed improvements at the time that those improvements will be required. The assessment process consists of estimating future receipts of revenues and comparing these receipts against anticipated expenditures. Using this process, it is possible to quantify annual revenue surpluses and shortfalls, providing a basis for examining opportunities for financing the needed capital improvements. The expenditure estimates include the operating costs associated with operations of the county. Projected Revenues The county's revenues are projected for fiscal years 2006/07 through 2010/11. The projected revenues are first analyzed in this section in general overall terms. Afterwards, earmarked projected revenues are discussed, as is the county's tax base and millage rate projections. Community Development Department Indian River County 30 Comprehensive Plan Capital Improvements Element • Overall Projected Revenues Table 6.8 summarizes the county's projected overall revenues for fiscal years 2006/07 through 2010/11. These revenues include the county's general governmental funds, enterprise funds, and internal funds. As table 6.8 shows, general revenue collected by the county is projected to decrease by 7.80% over the next five fiscal years, from $319,130,448 in FY 2006/07 to $296,048,533 in FY 2010/11. Table 6.8: Overall General Revenue Projection Summary FY 2006/07 2007/08 2008/09 2009/10 2010/11 TOTAL Taxes $121,737,000 $126,606,000 $130,404,000 $134,316,000 $135,659,000 $526,985,000 Licenses & Permits $937,000 $956,000 $975,000 $995,000 $1,015,000 $3,941,000 Intergovern- ment $20,340,415 $15,300,000 $15,606,000 $15,918,000 $16,077,000 $62,901,000 Charges for Services $16,483,000 $16,813,000 $17,149,000 $17,492,000 $17,842,000 $69,296,000 Fines & Forfeitures $177,000 $179,000 $181,000 $183,000 $185,000 $728,000 Interest & Misc. $99,224,033 $53,205,539 $62,354,178 $60,486,665 $60,073,533 $236,119,915 Enterprise Funds: Charges for Services $56,783,000 $57,919,000 $59,077,000 $60,259,000 $61,464,000 $238,719,000 Other Sources $3,449,000 $3,518,000 $3,588,000 $3,660,000 $3,733,000 $14,499,000 TOTAL $319,130,448 $274,496,539 $289,334,178 $293,309,665 $296,048,533 Source: Indian River County Office of Management and Budget. Earmarked Projected Revenues Earmarked revenues are revenues that are restricted in terms of use. Such revenues may be found in the Transportation Element, Sanitary Sewer Sub -Element, Potable Water Sub -Element, and Solid Waste Sub -Element. Table 6.9 provides a summary of earmarked revenue projections by applicable comprehensive plan elements for fiscal years 2006/07 through 2010/11. Projected revenues for transportation expenditures are broken down by their sources as shown in table 6.9. Earmarked projected revenues for the transportation element are expected to increase by 8.26% over the next five fiscal years, from $27,354,000 in FY 2006/07 to $28,350,853 in FY 2010/11. Earmarked revenue for the potable water and sanitary sewer sub -elements is expected to increase by 10.38% over the next five fiscal years, Community Development Department Indian River County 31 Comprehensive Plan Capital Improvements Element from $27,354,000 in FY 2006/07 to $30,193,000 in FY 2010/11. And earmarked revenue for the solid waste sub -element is expected to increase by 10.38% over the next five years, from $11,937,215 in FY 2006/07 to $13,176,451 in FY 2010/11. Table 6.9: Earmarked Projected Revenue by Comprehensive Plan Element Fiscal Year Transportation Potable Water & Sanitary Solid Waste Local Option Gas Tax Constitutional Gas Tax County Gas Tax Traffic Impact Fee 1 cent optional sales tax Interest on Gas Tax Total 2006/07 $3,526,000 $1,769,000 $796,000 $7,000,000 $12,743,000 $353,500 $26,187,500 $27,354,000 $11,937,215 2007/08 $3,561,000 $1,787,000 $804,000 $7,140,000 $13,062,000 $357,035 $26,711,035 $28,038,000 $12,235,645 2008/09 $3,597,000 $1,805,000 $812,000 $7,283,000 $13,389,000 $360,605 $27,246,605 $28,739,000 $12,541,536 2009/10 $3,633,000 $1,823,000 $820,000 $7,429,000 $13,724,000 $364,211 $27,793,211 $29,457,000 $12,855,074 2010/11 $3,669,000 $1,841,000 $828,000 $7,578,000 $14,067,000 $367,853 $28,350,853 $30,193,000 $13,176,451 Source: Indian River County Office of Management and Budget. • Tax Base, Assessment Ratio, Millage Rate Table 6.10 summarizes the county's tax base projections, which are categorized by fund, through FY 2010/11. The countywide ad valorem tax base is the same as the general fund category identified in table 6.10. Table 6.10: Indian River County Tax Base and Millage Projections Fiscal General Fund M.S.T.U. Emergency Services District Environmental Land Acquisition Year Tax Base Millage Tax Base Millage Tax Base Millage Tax Base . Millage 2006/07 $14,990,697,911 3.5204 $8,480,407,340 1.3969 $12,574,880,468 1.9911 $14,990,697,911 0.2839 2007/08 $15,740,232,807 3.5204 $8,904,427,707 1.3969 $13,203,624,491 1.9911 $15,740,232,807 0.2839 2008/09 $16,527,244,447 3.5204 $9,349,649,092 1.3969 $13,863,805,716 1.9911 $16,527,244,447 0.2839 2009/10 $17,353,606,669 3.5204 $9,817,131,547 1.3969 $14,556,996,002 1.9911 $17,353,606,669 0.2839 2010/11 $18,221,287,002 3.5204 $10,307,988,124 1.3969 $15,284,845,802 1.9911 $18,221,287,002 0.2839 Source: Indian River County Office of Management and Budget. As shown in table 6. 10, the county has a Municipal Service Taxing Unit (MSTU) and an emergency services district, each with a separate millage. Community Development Department Indian River County 32 Comprehensive Plan Capital Improvements Element Projected Expenditures Shown in table 6.11 are the county's proj ected expenditures for fiscal years 2006/07 through 2010/11. By fiscal year 2010/11, the county is projected to have annual expenditures totaling $296,048,533. In FY 2010/11, the category projected to have the largest expenditures is the Transportation category. For the five-year period, beginning in fiscal year 2006/07 ending in fiscal year 2010/11, the county's expenditures are projected to decrease by 7.23%. Table 6.11: Indian River County Overall General Expenditures Projection Summary FY 2006/07 2007/08 2008/09 2009/10 2010/11 General Gov't. Services $42,378,415 $36,438,000 $36,731,456 $37,578,000 $37,019,000 Public Safety $64,171,000 $61,660,000 $63,017,705 $64,610,000 $66,372,000 Physical Environment $4,958,000 $5,528,000 $7,350,000 $7,634,000 $9,650,000 Transportation $110,817,033 $72,639,539 $82,146,000 $81,503,665 $80,338,533 Economic Environment $742,000 $757,000 $772,000 $787,000 $803,000 Human Services $7,574,000 $7,725,000 $7,880,000 $8,038,000 $8,199,000 Culture/Recreation $22,622,000 $22,666,000 $23,119,000 $23,581,000 $24,053,000 Debt Service $5,636,000 $5,646,000 $5,653,000 $5,659,000 $4,417,000 Enterprise Funds/Other $60,232,000 $61,437,000 $62,665,000 $63,919,000 $65,197,000 TOTAL $319,130,448 $274,496,539 $289,334,161 $293,309,665 $296,048,533 Source: Indian River County Office of Management and Budget. Earmarked Projected Expenditures Table 6.12 indicates the projected expenditures for the water, sewer, and solid waste enterprise funds for fiscal years 2006/07 through 2010/11. These expenditures include operating expenses and other expenses for each year. Projected expenditures related to capacity charge revenues, however, are not included. All revenues from capacity charges must be spent on infrastructure that benefits the payer of the capacity charge. Therefore, the amount of revenues and expenditures increases and decreases with development. For this reason, projecting capacity charge revenues and expenditures is difficult. This system, however, ensures that new development will not reduce levels of service below county minimums. Community Development Department Indian River County 33 Comprehensive Plan Capital Improvements Element Table 6.12: Projected Expenses for Water, Sewer, and Solid Waste Fiscal Year Potable Water & Sanitary Sewer Solid Waste 2006/07 $27,354,000 $11,937,215 2007/08 $28,038,000 $12,235,645 2008/09 $28,739,000 $12,541,536 2009/10 $29,457,000 $12,855,074 2010/11 $30,193,000 $13,176,451 Source: Indian River County Office of Management and Budget. In FY 2010/11, the projected expenses for potable water and sanitary sewer services are expected to be $30,193,000. That is an increase of 10.38% from the 2006/07 projected expenses of $27,354,000. Table 6.12 shows that, in FY 2010/11, the projected expenses for solid waste services are expected to be $13,176,451. That is an increase of 10.38% from the 2006/07 projected figure of $11,937,215. Operating Cost Projections Table 6.13 provides projections of overall operating costs for the county for fiscal years 2006/07 through 20010/11. In fiscal year 2010/11, the county is projected to incur approximately $233,901,000 in operating costs. Based on the figures shown in table 6.13, the county's operating costs are projected to increase 7.47% between 2006/07 and 2010/11. Table 6.13: Indian River County Overall Operating Cost Projections Fiscal Year Total Operating Costs 2006/07 $217,646,000 2007/08 $221,895,000 2008/09 $226,226,000 2009/10 $230,643,000 2010/11 $233,901,000 Source: Indian River County Office of Management and Budget Projected Debt Capacity Debt Financing, which involves borrowing money using the county's assets as collateral, is one way that the county has provided for its capital facility needs. The primary rationale for providing capital Community Development Department Indian River County 34 Comprehensive Plan Capital Improvements Element facilities through indebtedness is that it spreads the cost of a facility over its useful life and thus is paid for by those who will use the facility. Table 6.14 provides a summary of the county's estimated ability to raise bonds without a public vote. The county's bonding capacity is identified for 10, 20, and 30 years. As table 6.14 indicates, the county's available bonding capacity for the next 10 years is $149,800,000, with an additional potential of $296,800,000. Table 6.14: Indian River County Estimated Ability to Raise Bonds Without A Public Vote Pledge Sources Ten Years (Bond Interest Rate @ 4.36%) Twenty Years (Bond Interest Rate (a)4.89% Thirty Years (Bond Interest Rate @ 4.94% Half Cent Sales Tax $49,900,000 $82,300,000 $104,700,000 Gas Taxes $49,500,000 $78,200,000 $96,200,000 Tourist Tax $9,000,000 $14,200,000 $17,500,000 First Guaranteed Entitlement $1,600,000 $2,600,000 $3,200,000 Second Guaranteed Entitlement $3,400,000 $5,400,000 $6,600,000 Sub -Total $113,400,000 $182,700,000 $228,200,000 Possible Pledge Sources Franchise Fees $20,100,000 $31,800,000 $39,100,000 Road Impact Fees $16,300,000 $24,400,000 $29,500,000 Sub -Total $36,400,000 $56,200,000 $68,600,000 TOTAL $149,800,000 $238,900,000 $296,800,000 Source: Indian River County Office of Management and Budget. Debt Service Obligations The county's debt service obligations for current and anticipated bond issues are summarized in table 6.15. Debt service is payment of principal and interest on obligations resulting from the issuance of bonds. As table 6.15 indicates, the county's major anticipated outstanding debts are for water and sewer revenue bonds, environmentally sensitive land acquisition bonds, recreational revenue bonds, and spring training facility revenue bonds. Community Development Department Indian River County 35 Comprehensive Plan Capital Improvements Element Table 6.15: Indian River County Bond Schedule FY Water & Sewer Recreational Environmentally Environmentally Water &Sewer Spring Training EndingRevenue Revenue Sensitive Land Sensitive Land Revenue Bonds Facility Revenue Refunding Bonds Refunding Bonds Acquisition Acquisition Bonds 1993 A Series 2003 Series 1996 Series 5.755% 3.65% 2001 Series 3.89% 2003 Series 2.05% 5.752% 2001 Series 4.87% $47,190,000 $6,455,000 $11,000,000 $7,800,000 $38,900,000 $16,810,000 Balance $37,515,000 $6,045,000 $9,315,000 $6,765,000 $33,390,000 $15,515,000 Interest $2,030,180 $189,057 $350,817 $165,737 $1,813,634 $737,403 Principal $1,110,000 $450,000 $630,000 $1,065,000 $835,000 $490,000 2005 Total $3,140,180 $639,057 $980,817 $1,230,737 $2,648,634 $1,227,403 Balance $36,405,000 $5,595,000 $8,685,000 $5,700,000 $32,555,000 $15,025,000 Interest $1,972,460 $180,058 $331,918 $146,238 $1,772,719 $721,233 Principal $1,170,000 $460,000 $650,000 $1,080,000 $875,000 $505,000 2006 Total $3,142,460 $640,058 $981,918 $1,226,238 $2,647,719 $1,226,233 Balance $35,235,000 $5,135,000 $8,035,000 $4,620,000 $31,680,000 $14,520,000 Interest $1,910,450 $170,857 $312,417 $124,637 $1,728,969 $704,063 Principal $1,230,000 $475,000 $670,000 $1,105,000 $920,000 $520,000 2007 Total $3,140,450 $645,857 $982,417 $1,229,637 $2,648,969 $1,224,063 Balance $34,005,000 $4,660,000 $7,365,000 $3,515,000 $30,760,000 $14,000,000 Interest $1,830,500 $160,764 $290,643 $99,775 $1,682,969 $685,343 Principal $1,310,000 $485,000 $690,000 $1,135,000 $965,000 $545,000 2008 Total $3,140,500 $645,764 $980,643 $1,234,775 $2,647,969 $1,230,343 Balance $32,695,000 $4,175,000 $6,675,000 $2,380,000 $29,795,000 $13,455,000 Interest $1,745,350 $148,638 $266,492 $71,400 $1,633,512 $664,633 Principal $1,395,000 $490,000 $720,000 $1,170,000 $1,015,000 $560,000 2009 Total $3,140,350 $638,638 $986,492 $1,241,400 $2,648,512 $1,224,633 Balance $31,300,000 $3,685,000 $5,955,000 $1,210,000 $28,780,000 $12,895,000 Community Development Department Indian River County 36 Comprehensive Plan Capital Improvements Element Community Development Department Indian River County 37 Interest $1,668,625 $135,164 $240,573 $36,300 $1,580,225 $642,233 Principal $1,475,000 $510,000 $745,000 $1,210,000 $1,070,000 $585,000 2010 Total $3,143,625 $645,164 $985,573 $1,246,300 $2,650,225 $1,227,233 Balance $29,825,000 $3,175,000 $5,210,000 $0 $27,710,000 $12,310,000 Interest $1,587,500 $119,864 $213,007 $1,524,050 $618,833 Principal $1,555,000 $520,000 $780,000 $1,125,000 $605,000 2011 Total $3,142,500 $639,864 $993,007 $2,649,050 $1,223,833 Balance $28,270,000 $2,655,000 $4,430,000 $26,585,000 $11,705,000 Interest $1,501,975 $102,964 $183,368 $1,462,175 $593,423 Principal $1,640,000 $535,000 $810,000 $1,185,000 $630,000 2012 Total $3,141,975 $637,964 $993,368 $2,647,175 $1,223,423 Balance $26,630,000 $2,120,000 $3,620,000 $25,400,000 $11,075,000 Interest $1,411,775 $83,169 $151,777 $1,397,000 $566,333 Principal $1,730,000 $555,000 $845,000 $1,255,000 $655,000 2013 Total $3,141,775 $638,169 $996,777 $2,652,000 $1,221,333 Balance $24,900,000 $1,565,000 $2,775,000 $24,145,000 $10,420,000 Interest $1,316,250 $62,356 $117,978 $1,327,975 $537,513 2014 Principal $1,825,000 $580,000 $885,000 $1,320,000 $685,000 Total $3,141,250 $642,356 $1,002,978 $2,647,975 $1,222,513 Balance $23,075,000 $985,000 $1,890,000 $22,825,000 $9,735,000 Interest $1,216,250 $39,881 $80,807 $1,255,375 $501,550 Principal $1,925,000 $600,000 $925,000 $1,395,000 $725,000 2015 Total $3,141,250 $639,881 $1,005,807 $2,650,375 $1,226,550 Balance $21,150,000 $385,000 $965,000 $21,430,000 $9,010,000 Interest $1,110,375 $15,881 $41,495 $1,178,650 $463,488 Principal $2,030,000 $385,000 $965,000 $1,470,000 $760,000 2016 Total $3,140,375 $400,881 $1,006,495 $2,648,650 $1,223,488 Balance $19,120,000 $0 $0 $19,960,000 $8,250,000 Community Development Department Indian River County 37 Comprehensive Plan Capital Improvements Element Community Development Department Indian River County 38 Interest $1,003,800 $1,097,800 $423,588 Principal $2,135,000 $1,550,000 $795,000 2017 13,138,800 $2,647,800 $1,218,588 ,Total Balance $16,985,000 $18,410,000 $7,455,000 Interest $891,713 $1,012,550 $381,850 Principal $2,250,000 $1,635,000 $840,000 2018 Total $3,141,713 $2,647,550 $1,221,850 Balance $14,735,000 $16,775,000 $6,615,000 Interest $773,558 $922,625 $337,750 Principal $2,370,000 $1,725,000 $890,000 2019 Total $3,143,558 $2,647,625 $1,227,750 Balance $12,365,000 $15,050,000 $5,725,000 Interest $649,163 $827,750 $291,025 Principal $2,490,000 $1,820,000 $930,000 2020 Total $3,139,163 $2,647,750 $1,221,025 Balance $9,875,000 $13,230,000 $4,795,000 Interest $518,438 $727,650 $242,200 Principal $2,625,000 $1,920,000 $980,000 2021 Total $3,143,438 $2,647,650 $1,222,200 Balance $7,250,000 $11,310,000 $3,815,000 Interest $380,625 $622,050 $190,750 Principal $2,760,000 $2,025,000 $305,000 2022 Total $3,140,625 $2,647,050 $495,750 Balance $4,490,000 $9,285,000 $3,510,000 Interest $235,725 $510,675 $175,500 Principal $2,905,000 $2,140,000 $320,000 2023 Total $3,140,725 $2,650,675 $495,500 Balance $1,585,000 $7,145,000 $3,190,000 Community Development Department Indian River County 38 Comprehensive Plan Capital Improvements Element Community Development Department Indian River County 39 Interest $83,213 $392,975 $159,500 Principal $1,585,000 $2,255,000 $340,000 2024 Total $1,668,213 $2,647,975 $499,500 Balance $0 $4,890,000 $2,850,000 Interest $268,950 $142,500 Principal $2,380,000 $355,000 2025 Total $2,648,950 $497,500 Balance $2,510,000 $2,495,000 Interest $138,050 $124,750 Principal $2,510,000 $375,000 2026 Total $2,648,050 $499,750 Balance $0 $2,120,000 Interest $106,000 Principal $390,000 2027 Total $496,000 Balance $1,730,000 Interest $86,500 Principal $410,000 2028 Total $496,500 Balance $1,320,000 Interest $66,000 2029 Principal $430,000 Total $496,000 Balance $890,000 Interest $44,500 Principal $455,000 2030 Total $499,500 Balance $435,000 Community Development Department Indian River County 39 Comprehensive Plan Capital Improvements Element 2031 Interest $21,750 Principal $435,000 Total $456,750 Balance $0 Source: Indian River County Office of Management Fiscal Assessment Summary This section provides an analysis of the county's revenues and expenditures for its capital improvement needs for the five-year period beginning in FY 2006/07 and ending in FY2010/11. Appendix A details all of the capital improvement projects for the next five fiscal years for each individual comprehensive plan element by cost, timeframe, and revenue source(s). Table 6.8 provides general revenue projections for the county through fiscal year 2010/11. As shown within Table 6.8, the County will generate $1,472,319,363 in revenues from general funds, enterprise funds, and internal funds between fiscal year 2006/07 and fiscal year 2010/11. Portions of the money needed for the capital improvements listed within Appendix A will come from the $1,472,319,363 . Other sources will also be utilized to fund capital improvement projects, including grants and impact fees. The total estimated cost of all projects contained within the County's Capital Improvements project list is $680,922,126 for the next five fiscal years. Concurrency Management Plan To ensure that level -of -service standards are maintained, it necessary to have a system in place which provides the criteria for measuring facility capacity, assessing development demand on applicable facilities, and monitoring service levels for applicable facilities. This system will set the parameters for issuing development orders consistent with level -of -service standards. While this concurrency management plan sets policies and establishes a process, the specific application of this system is through the county's land development regulations. As per state requirements, these regulations define the details of the concurrency management system and establish its administrative requirements. The major purpose of the concurrency management system is to detail the specifics of implementing the county's level -of -service standards. For that reason, the concurrency management system must apply to all development activity in the county. The system must then identify the applicable standards for each facility, the geographic scope of each facility, and the method of monitoring facility capacity changes. Most importantly, this system must specify when facilities are considered available. Community Development Department Indian River County 40 Comprehensive Plan Capital Improvements Element Project Applicability All development orders issued by the county must comply with the concurrency management plan and meet level -of -service standards. Development orders are county approvals for construction and/or land development activity. Specifically, development orders consist of the following: comprehensive plan amendments, rezonings, site plan approvals, preliminary plat approvals, development of regional impact (DRI) approvals, planned development preliminary approvals, and building permit approvals for single-family homes located in subdivisions which were approved after February 13, 1990, the original adoption date of the county's comprehensive plan. According to Section 163.3180(6), F.S., the impact from the construction of a single family home on an existing lot may constitute a de minimus impact on public facilities. State law allows such de minimus projects to be exempt from the concurrency requirement. Prior to 2005, however, Indian River County allowed single-family subdivision projects to postpone final concurrency determinations until building permit applications for individual lots. For that reason, the County could not use the de minimus allowance in the past. With the County now requiring final concurrency at the project approval phase, Indian River County shall apply the single family de minimus allowance to single family building permits in subdivisions platted before February 13, 1990. Service Standards Level -of -service standards for concurrency related facilities are established in this plan for the following facilities: sanitary sewer, potable water, solid waste, stormwater management, recreation, and transportation. These are explained in detail in the applicable comprehensive plan elements. For each facility, level -of -service is a measure of the relationship between demand for the service and the capacity of the facility. Capacity, however, is measured differently for each type of facility. Table 6.17 identifies both the capacity and demand measures for each public facility. These measures are addressed in detail, and existing capacities are identified in the applicable Comprehensive Plan Elements. Community Development Department Indian River County 41 Comprehensive Plan Capital Improvements Element Table 6.16: Service Level Measures for Concurrency Related Facilities Public Facility Category Specific Facility Capacity Measure Demand Measure Geographic Scope Transportation Roadway Volume of cars Peak Season/Peak erected Roadways accommodated over time Direction/Peak Hour Trips Sanitary Sewer Treatment Plant Treatment design Capacity Generation Rate (GPD) Service Area Potable Water Treatment Plant Treatment Design Capacity Generation Rate (GPD) Service Area Solid Waste Landfill Volume in active cell (cubic Generation Rate (tons per Entire County yards) capita per year) Recreation Parks Acres of park land Acres of parks per thousand Entire County population Stormwater Management Drainage Volume of water Volume of stormwater Basin conveyances outfalling for design storm Concurrency requires that each facility within the geographic scope of a proposed project's impact area have sufficient capacity to accommodate the project's demand. If that capacity is not available, the proj ect cannot be approved. The principal function of the concurrency management system then is to provide a mechanism whereby demand and capacity measures can be compared on a project by project basis. Table 6.16 provides the criteria for establishing a demand to capacity comparison for a proposed project. While most of the characteristics are self-explanatory, one needs clarification; this is the geographic scope for the traffic public facility category. For concurrency purposes, affected roadways will be those roadways impacted by a project's traffic. All projects, regardless of size, impact the roadway on which the project fronts. In addition, other roadways further removed from the project are impacted. For concurrency purposes, roadways that gain 5% or more of the project's traffic or 50 or more of the project's generated trips, whichever is less are included. Level -of -service standards for concurrency related facilities are to. apply to all requests for development orders and permits. Level - of -service standards are measurements based on peak -hour trips and based on volume ranges or average travel speed for the peak hour. Demand Demand is an important component of the concurrency management system. Essentially, demand is a measure of facility use. When compared to facility capacity, demand can indicate the level -of -service for the facility. As depicted in Table 6.16, demand can be measured quantitatively for each public facility category. While the demand function for each facility consists of applying a rate to the number of facility users, estimation of total demand is more complex. For concurrency management purposes, demand can be Community Development Department Indian River County 42 Comprehensive Plan Capital Improvements Element divided into three types: existing, committed, and projected. Each must be considered separately for purposes of concurrency management. Existing Demand Existing demand is simply the current level of use for a facility. For a roadway, it is the number of peak hour/peak season/peak direction trips; for water and wastewater treatment plants, it is the existing flow volume measured in gallons per day. These figures are included within applicable plan elements. Existing demand then reflects the use of a facility by the current population. When compared to capacity, existing demand can show if the facility has unused capacity or if it is functioning over capacity. Existing demand, however, is not static. As population increases and dwelling units come on-line, existing demand increases. These increases in existing demand can be identified through facility use measurements. For example, regular traffic counts done on roads or treatment plant flow records are examples of facility use measurements indicating existing demand levels. As existing demand levels for facilities are updated, committed demand levels must be reduced if projects representing committed demand have come on-line. Committed Demand Committed demand is a measure of the impact that approved development projects with reserved capacity will have on facilities. When added to existing demand for a facility, the committed demand for that facility will produce a more accurate estimate of unused capacity. This estimate of unused capacity represents the amount of capacity that can realistically be allocated to new projects. Committed demand must be determined by identifying all projects for which capacity has been reserved through issuance of initial concurrency certificates which are still valid. Then the specific facilities that will be impacted by these projects with reserved capacities must be determined; these facilities will be roadways and the landfill, and they may be treatment plants, drainage conveyances, and recreation facilities. Finally, the total demand on each facility attributable to committed demand will be determined. Applicable elements of the plan identify the rates to be applied to each project to determine facility demand. Traffic volumes, for example, can be derived by applying a trip rate to the size of the project. Sanitary sewer and potable water both have rates of 250 gallons per day per equivalent residential unit. Other public facility rates are discussed fully in their applicable Comprehensive Plan Element. Community Development Department Indian River County 43 Comprehensive Plan Capital Improvements Element Like existing demand, committed demand must be determined on a facility by facility basis. For example, both existing demand and committed demand must be determined for each major roadway, each treatment plant, each major drainage conveyance, and the active cell in the landfill. Also, like existing demand, committed demand estimates must be modified as projects are completed; committed demand estimates must also be modified as new development orders are approved and old development orders are terminated. Projected Demand The third type of demand is projected demand. This consists of two types. One is non- committed/non-reserved, single-family lot demand for all subdivisions platted after February 13, 1990, while the other is new project demand. Non-committed/non-reserved single-family lot projected demand relates to the facility impacts associated with construction on single-family lots in subdivisions platted after February 13, 1990 and construction on single-family unplatted lots and acreage. Since this type of construction will impact facilities, the demand anticipated from this type of activity must be considered in facility expansion plans. For this reason, it is necessary to maintain an accurate inventory of unbuilt, platted lots and consider the impacts of construction on these lots. The second type of projected demand is new project demand. For each new project, demand estimates must be made on a facility by facility basis. Only if sufficient available capacity exists for each facility to be impacted canthe project be approved and a development order issued. Upon issuance of a development order, the estimated impacts on each facility would be considered as committed demand. Availability of Capacity Facility capacity can be assessed two different ways. First, facility capacity can be determined by facilities that are existing and available; examples would be existing treatment plants and existing roadways with a set number of lanes. The second manner for assessing facility capacity is to consider both existing, in -the -ground facilities as well as facility expansions or new facilities which are programmed but not yet existing. According to Chapter 9J-5.0055(3), Minimum Requirements For Concurrency, Florida Administrative Code, the capacity of existing, in -the -ground facilities will be considered in all cases. Programmed facilities will be considered in assessing capacity for each public facility category when the following conditions are met: ➢ For sanitary sewer, potable water, solid waste and drainage facilities: Community Development Department Indian River County 44 Comprehensive Plan Capital Improvements Element 1. A development order or permit is issued subject to the condition that, at the time of the issuance of a certificate of occupancy or its functional equivalent, the necessary facilities and services are in place and available to serve the new development; or 2. At the time the development order or permit is issued, the necessary facilities and services are guaranteed in an enforceable development agreement, pursuant to Section 1.63.3220, F.S., or an agreement or development order issued pursuant to Chapter 380, F.S., to be in place and available to serve new development at the time of the issuance of a certificate of occupancy or its functional equivalent. [Section 163.3180(2)(a), F.S.] ➢ For parks and recreation facilities: 1. At the time the development order or permit is issued, the necessary facilities and services are in place or under actual construction; or 2. A development order or permit is issued subject to the condition that, at the time of the issuance of a certificate of occupancy or its functional equivalent, the acreage for the necessary facilities and services to serve the new development is dedicated or acquired by the local government, or funds in the amount of the developer's fair share are committed; and a. A development order or permit is issued subject to a condition that the necessary facilities and services needed to serve the new development are in place or under actual construction not more than one year after issuance of a certificate of occupancy or its functional equivalent; or b. At the time the development order or permit is issued, the necessary facilities and services are the subject of a binding executed agreement which requires the necessary facilities and services to serve the new development to be in place or under actual construction not more than one year after issuance of a certificate of occupancy or its functional equivalent; or c. At the time the development order or permit is issued, the necessary facilities and services are guaranteed in an enforceable development agreement, pursuant to Section 163.3220, F.S., or an agreement or development order issued pursuant to Chapter 380, F.S., to be in place or under actual construction not more than one year after issuance of a certificate of occupancy or its functional equivalent. [Section 163.3180(2)(b), F.S.] ➢ Transportation supply (capacity). Transportation supply shall be determined on a segment by segment basis. For concurrency purposes, all segments on the county's thoroughfare plan shall be considered. Capacity for segments will be based either on FDOT's generalized capacity Community Development Department Indian River County 45 Comprehensive Plan Capital Improvements Element tables or individual segment capacity studies approved by the public works director pursuant to the criteria specified in Chapter 952, Traffic. Transportation supply for each segment is: 1. The segment's existing peak hour, peak season, peak direction capacity; or 2. The segment's new roadway capacity if facility expansion for the segment is proposed and if. a. At the time a development order or permit is issued, the necessary facilities and services are in place or under construction; or b. A development order or permit is issued subject to a condition that the facility expansion needed to serve the new development is included in the county's adopted five-year schedule of capital improvements and is scheduled to be in place or under. actual construction not more than three years after issuance of the project's first building permit or its functional equivalent. The schedule of capital improvements may recognize and include transportation projects included in the first three years of the adopted Florida Department of Transportation five year work program. In order to apply this provision to a facility expansion project, the Capital Improvements Element must include the following policies: i. The estimated date of commencement of actual construction and the estimated date of project completion (for Indian River County, this is included in policy 5.11 of this element and within Appendix B of this element). ii. A provision that a plan amendment is required to eliminate, defer, or delay construction of any road or mass transit facility or service which is needed to maintain the adopted level of service standard and which is listed in the five-year schedule of capital improvements (for Indian River County, this is included in Policy 1.2 of this Element); or 3. At the time a development order or permit is issued, the facility is the subject of a binding executed agreement which requires the facility to be in place or under actual construction no more than three years after the issuance of the project's first building permit or its functional equivalent; or 4. At the time a development order or permit is issued, the facility is guaranteed in an enforceable development agreement, pursuant to Section 163.3220, F.S., or an agreement or development order issued pursuant to Chapter 380, F.S., to be in place or Community Development Department Indian River County 46 Comprehensive Plan Capital Improvements Element under actual construction not more than three years after issuance of a building permit or its functional equivalent. [Section 1.63.3180(2)(c), F.S.] 5. The segment's new roadway capacity if facility expansion for the segment is the subject of a proportionate fair -share agreement. In such case, the segment capacity increase reflected in the proportionate fair share agreement shall be available only to the parry or parties to the proportionate fair share agreement. Regulation No development order shall be issued for any project where the project's demand in conjunction with existing demand and committed demand will exceed the capacity of a facility at the service level established in this plan. Level -of -service analysis will be undertaken during the review of each project for which development order approval is required. Monitoring System To effectively implement the concurrency requirement, it is necessary to maintain an estimate of available capacity for each public facility subj ect to level -of -service requirements. By maintaining an accurate and current available capacity estimate for each facility, projected demand from development applications can be compared to the available capacity for the facility to determine if the project can be approved. The purpose of the monitoring program is to maintain a current estimate of available capacity for each facility. The monitoring system portion of the concurrency management plan is maintained by the county's planning division. Using a network computer system and data base management software, records were developed and are maintained for each specific facility. Based upon information in the specific comprehensive plan elements, total capacity figures for each applicable facility are maintained in data base files established for each public facility category. Capacity figures are modified as facilities are expanded or as criteria specified in the availability of capacity section are met, thereby allowing a programmed expansion to be considered for capacity determination purposes. Through contact with other county departments, planning staff are able to modify capacity estimates as soon as facility characteristics are changed. Table 6.17 depicts the general structure of the monitoring system data base file for each public facility category. This table shows that available capacity for each specific facility is a function of total capacity less existing demand and less committed demand. The demand section of this concurrency management plan identifies the methodology for assessing demand. Community Development Department Indian River County 47 Comprehensive Plan Capital Improvements Element Table 6.17: Monitoring System Design Public Facility Specific Total Capacity Existing Demand Committed Demand Available Capacity Category Facilities Annually Identify existing flows for each water and sewer treatmenplant Utilities Annually Estimate Landfill (active cell) volume used Utilities Peak season/ Annual count (average) Volume estimated from (Total Capacity) - Traffic. Roadways peak direction/ peak hour (LOS (peak season/peak approved Development (Existing Demand) - Add estimated demand for new projects to committed demand total upon issuance of DO Planning D) direction/peak hour) Orders (DO) (Committed Demand) Volume estimated from (Total Capacity) - Sanitary Sewer Treatment Plants Design flows Existing flows approved DO's (Existing Demand) - (Committed Demand) Volume estimated from (Total Capacity)- Potable Water Treatment Plants Design flows Existing flows approved DO's (Existing Demand)- (Committed Demand) Active cell Volume estimated from (Total Capacity) - Solid Waste Landfill design capacity Active cell volume used approved DO's (Existing Demand) - (Committed Demand) (Acres per thousand (Acres per thousand population) X (projected (Total Capacity) - Recreation Parks Park Acreage population) X (existing population for approved (Existing Demand) - population) DO's) (Committed Demand) Drainage Volume of stormwater (Total Capacity) - Drainage Volume Existing flows allowed to ottfall for (Existing Demand)- conveyances approved DO's (Committed Demand) To implement the monitoring system, the following actions shown in table 6.18 will be necessary. Table 6.18: Monitoring System Tasks Action Responsible Department Timing Do quarterly traffic counts for thoroughfare plan roads to determine existing demand Engineering Annually Compile quarterly ridership statistics for all fixed routes MPO Annually Identify existing flows for each water and sewer treatmenplant Utilities Annually Estimate Landfill (active cell) volume used Utilities Annually Estimate population and apply park standard to determine park existing demand Planning Annually Estimate existing flows for drainage conveyances Engineerirg Annually Enter data received from other departments into computer Planning Ongoing Add estimated demand for new projects to committed demand total upon issuance of DO Planning Ongoing Maintain records of units/projects receiving a certificatef occupancy, maintain demand estimates from those units/projects, subtract estimated demand for those units/projects for committed demand once existing demand is updated Planning Ongoing Community Development Department Indian River County 48 Comprehensive Plan Capital Improvements Element Applicability The concurrency management plan monitoring system has applicability to more than just level -of - service measurement. It also provides the basis for assessing facility expansion needs and therefore capital improvements programming. By maintaining an accurate and up-to-date estimate of available capacity, the need for facility expansion can be recognized before all capacity is used. By incorporating the monitoring system into the capital improvements programming process, capital budgets can be prepared based on reliable information and valid estimates of need. Community Development Department Indian River County 49 Comprehensive Plan Capital Improvements Element Goal, Obiectives and Policies Goal It is the goal of Indian River County to provide needed capital improvements through the use of sound fiscal decision making. Objectives and Policies Objective 1: Construction of Capital Facilities By 2010, the county will have eliminated existing deficiencies, accommodated desired future growth, and replaced obsolete or worn-out facilities. Policy 1.1: The county shall maintain a five-year capital improvement program and pursuant to Section 163.3177(3)(b) F. S. evaluate and update that program every year to reflect existing and future public facility needs of the county. This capital improvement program will ensure that the plan is financially feasible and that the adopted level -of -service standards are achieved and maintained. Policy 1.2: The county shall undertake only those capital improvements included within this element's adopted capital improvements program. Pursuant to Section 163.3177(3)(b) F.S., .the Capital Improvements Element will be reviewed every year. Consistent with Section 9J-5 of the Florida Administrative Code, if any facility identified in the Schedule of Capital Improvements is delayed or deferred in construction, or is eliminated from the capital improvements program, and this delay, defer, or elimination will cause the level -of -service to deteriorate below the adopted minimum level of service standard for the facility, a comprehensive plan amendment will be required to adjust the Schedule of Capital Improvements. The annual update of the capital improvement element shall be done with a single public hearing before the Board of County Commissioners and a copy of the ordinance amending the Capital Improvements Element shall be transmitted to DCA. Policy 1.3: The county shall evaluate and prioritize its capital improvement projects based on following criteria. These criteria are ranked in order of importance. ➢ Preservation of the health and safety of the public by eliminating public hazards; ➢ Compliance with all mandates and prior commitments; ➢ Elimination of existing deficiencies; ➢ Maintenance of adopted level -of -service standards; ➢ Provision of infrastructure concurrent with the impact of new development; ➢ Protection of prior infrastructure investments; ➢ Consistency with the county plan and plans of other agencies; ➢ Accommodation of new development and redevelopment facility demands; ➢ Consistency with plans of state agencies and water management districts that provide public facilities within the local government's jurisdiction; Community Development Department Indian River County 50 Comprehensive Plan Capital Improvements Element ➢ Promotion of compact development by discouraging growth outside of urban service areas; ➢ Demonstration of linkages between projected growth and facility location; ➢ Utilization of the economies of scale and timing of other improvements; ➢ Reduction of operating costs; ➢ Adjustment for unseen opportunities, situations, and disasters. Polio: The county shall implement the policies of the Potable Water, Sanitary Sewer, and Solid Waste sub -elements of the Comprehensive Plan. Since these are enterprise account funded elements, capital expenditures identified in these elements shall be funded principally from revenues derived from the applicable systems. Policy 1.5: The county shall prioritize and implement the programs identified in the Transportation, Recreation and Open Space, Stormwater Management, Conservation, and Future Land Use Elements of the Comprehensive Plan. Policy 1.6: The county shall not eliminate or reallocate budgeted appropriations for road improvement projects required to meet the adopted level -of -service standards unless the applicable projects will be constructed by other means and remain concurrent with the county's Schedule of Capital Improvements. Policy 1.7: The county shall continue to allocate funds for the replacement and the renewal of infrastructure in an amount which will minimize the operating costs of the infrastructure and maximize the life of the infrastructure. Policy 1.8: The county shall manage its long-term general obligation debt in such a manner that the ratio of the debt service millage to the couniywide operating millage does not exceed 20%. Polio: The county hereby defines a capital improvement as an improvement with a cost that exceeds $25,000. Policy 1.10: The Schedule of Capital Improvements shall contain a mix of capital expenditures, including projects to eliminate existing deficiencies, to upgrade and replace existing facilities, and to construct new facilities. Policy 1.11: The county shall maintain a procedure in its annual budget review requiring each county department to include in its annual budget request applicable expenditures as identified in the capital improvements program of the appropriate Comprehensive Plan Element as well as department's capital improvements. Community Development Department Indian River County 51 Comprehensive Plan Capital Improvements Element Objective 2: Development in Coastal High Hazard Areas Through 2020, development in coastal high hazard areas will not increase beyond the density or intensity levels indicated on the current Future Land Use Map. Policy 2.1: The coastal high hazard area is defined as the area of the county designated as evacuation zones for a category one hurricane. Policy 2.2: The county shall not increase land use density and intensity, in the coastal high hazard area, beyond that reflected in the county's current Future Land Use Map. Policy 2.3: The county shall make appropriations for infrastructure in coastal high hazard areas only to maintain the adopted level -of -service standards. Policy 2.4: The county shall ensure that the replacement of infrastructure in the coastal high hazard area will be limited to maintaining the adopted level -of -service standards. Policy 2.5: The county shall require that all developments and all single-family units in coastal high hazard areas fully pay the cost for required infrastructure improvements through impact fees, capacity charges, developer dedications, assessments, and contributions. Policy 2_6: The county shall not use public funds to subsidize increased density or intensity of urban development in coastal high hazard areas; however, public beach, shoreline access, resource restoration, or similar projects may be constructed. Obiective 3: Maintenance of Established Level -of -Service Standards Through 2020, adopted levels -of -service will be maintained for all concurrency facilities. Policy 3.1: The county hereby adopts the concurrency management system as described within this element. The county shall maintain Land Development Regulation (LDR) Chapter 910, Concurrency Management System, which implements the plan's concurrency management system. In accordance with the concurrency management system of this plan and LDR Ch. 910, the county will not approve any development proj ect where the impacts of such a project would lower the existing level -of -service on any facility below that facility's adopted minimum level -of -service standard. Policy 3.2: The county shall approve development only in accordance with the utility connection matrix identified in the Sanitary Sewer and Potable Water Sub -Elements. Policy 3.3: The county shall, concurrent with the impact of new development, provide the infrastructure necessary to maintain the levels -of -service identified in the various elements of the Comprehensive Plan. Where development is proposed and is consistent with all applicable Community Development Department Indian River County 52 Comprehensive Plan Capital Improvements Element regulations but one or more public facilities is/are operating at an inadequate service level, the applicant may at his expense make facility improvements to increase facility capacity when such improvements are consistent with county plans and receive county approval. Policy 3.4: The county shall make land use decisions based on the planned availability of facilities to maintain adopted level -of -service standards. Policy 3.5: The county hereby adopts Concurrency Management level -of -service standards for public facilities that are established in the other Comprehensive Plan Elements and which are stated below: ➢ Stormwater Management: The county hereby adopts the following level -of -service standard for all new drainage systems within the unincorporated county: ➢ New development requiring major site plan approval or subdivision platting shall construct a complete drainage system to mitigate the impacts of a 25 year/24 hour design rainfall event using the soil conservation service type 2 modified rainfall curves. ➢ Post development runoff for any drainage basin shall not exceed pre -development runoff unless a maximum discharge rate has been adopted and the discharge does not exceed that rate. If a maximum discharge rate has not been adopted for a basin, post development discharge may not exceed pre -development discharge. By 2010, all existing roadways in the county shall be improved to meet the following level -of -service standards: ➢ Minimum road crown elevation for existing roads shall be raised during resurfacing/rebuilding to the flood elevation resulting from the 2 year/24 hour storm event on local streets. ➢ The center two lanes of rebuilt roads must be at or above flood levels resulting from a 10 year 24 hour storm event on Arterial and Collector roads. ➢ All drainage basins will meet the following level of service standards: By 2007 5-Year/24 Hour Storm Event By 2010 10-Year/24 Hour Storm Event The county hereby adopts the following water quality level -of -service standard: ➢ As a minimum, retention of the first one inch of rainfall is required prior to offsite discharge. An additional 50% treatment is required for all direct discharge into the Sebastian River and into the Indian River Lagoon due to its designation as an outstanding Florida water, as required by state law. Community Development Department Indian River County 53 Comprehensive Plan Capital Improvements Element ➢ Potable Water The following level -of -service standard is adopted for the county's potable water facilities, and shall be utilized for determining the availability of facility capacity and demand generated by a development: ➢ Countywide level -of -service standard of 250 gallons per day per equivalent residential unit. ➢ Solid Waste The following level -of -service standard is adopted for solid waste facilities in the county, and shall be used as the basis for determining the availability of facility capacity and demand generated by a development: ➢ Countywide level -of -service standard of 2.2 tons or 3.67 cubic yards per capita for permanent plus weighted peak seasonal population per year. ➢ Sanitary Sewer The following level -of -service standard is adopted for the county's sanitary sewer facilities, and shall be utilized for determining the availability of facility capacity and demand generated by a development: ➢ Countywide level -of -service standard of 250 gallons per day per equivalent residential unit with a peak monthly flow factor of 1.25. ➢ Recreation & Open Space The county adopts the following recreation level -of -service standard: ➢ County wide level -of -service standard of 6.61 recreation acres/1,000 permanent plus weighted peak seasonal population. ➢ Transportation The county adopts traffic circulation level -of -service standards as follows: ➢ Level -of -Service "D" during peak hour, peak season, peak direction conditions, on all TRIP grant funded roads as well as all freeway, arterial, and collector roadways, with the exception of the following two, which will operate at level of service `B" plus 20%. • 27th Ave — South County Line to SR 60 • 43`d Ave — Oslo Road to 16th Street Community Development Department Indian River County 54 Comprehensive Plan Capital Improvements Element For SIS/Florida Intrastate Highway System roadways, level of service `B" is adopted for rural areas, and level of service "C" is adopted for urban areas. Policy 3.6: The county hereby adopts level -of -service standards for selected public facilities as follows: ➢ Correctional Facilities The county adopts the following correctional facilities level -of -service standard: ➢ County wide level -of -service standard of 4.5 beds/1,000 permanent plus weighted peak seasonal population ➢ Fire/EMS The county adopts the following Fire/EMS level -of -service standard: ➢ County wide (excluding Indian River Shores) level -of -service standard. of .089 Stations per 1,000 permanent plus weighted peak seasonal population ➢ Law Enforcement, The county adopts the following Law Enforcement level -of -service standard: ➢ Unincorporated County level -of -service standard of 2.09 officers per 1,000 permanent plus weighted peak seasonal population ➢ Libraries The county adopts the following Libraries level -of -service standards: ➢ County wide level -of -service standard of 580 building square feet per 1,000 permanent plus weighted peak seasonal population ➢ County wide level -of -service standard of 3,200 library material items per 1,000 permanent plus weighted peak seasonal population ➢ County wide level -of -service standard of 0.7 computers per 1,000 permanent plus weighted peak seasonal population ➢ County wide level -of -service standard of 0.2 other library equipment items per 1,000 permanent plus weighted peak seasonal population ➢ Public Buildings The county adopts the following Public Buildings level -of -service standard: ➢ County wide level -of -service standard of 1.99 building square feet per capita for permanent plus weighted peak seasonal population. Community Development Department Indian River County 55 Comprehensive Plan Capital Improvements Element ➢ Schools The county adopts the following Schools level -of -service standards: ➢ County wide level -of -service standard for Elementary Schools of 144.71 building square foot per student station ➢ County wide level -of -service standard for Middle Schools of 117.26 building square foot per student station ➢ County wide level -of -service standard for High Schools of 147.57 building square foot per student station ➢ County wide weighted average level -of -service standard for all schools of 139.07 building square foot per student station ➢ Transit The County adopts the following transit level -of -service standard: ➢ One-hour headways shall be maintained on all fixed transit routes. Obiective 4: Future Development's Share of Capital Costs Through 2020, new developments will bear a proportionate share of the cost required to maintain adopted level -of -service standards. Policy 4.1: The county shall use impact fees, capacity charges, assessments, developer dedications and contributions, to pay for infrastructure improvements and services needed to satisfy future needs while maintaining adopted level -of -service standards. Policy 4.2: The county shall conduct research to identify new sources of revenue for funding capital improvement projects. Obiective 5: Local Government's Ability to Provide Required Services and Facilities Through 2020, the county will ensure, that it is able to fund and provide required services and facilities. Policy 5.1: The county shall not approve land use amendment requests unless those requests are consistent with the concurrency management system requirements of this element. Policy 5.2: In the event that the planned capacity of public facilities is insufficient to serve all applicants for development orders, the county shall schedule capital improvements to serve developments in the following order of priority: ➢ Single-family units in existing platted subdivisions or on existing legal, buildable parcels ➢ Affordable housing projects Community Development Department Indian River County 56 Comprehensive Plan Capital Improvements Element ➢ New development orders permitting redevelopment ➢ New development orders permitting new developments where the applicant funds the infrastructure expansion in exchange for future reimbursement ➢ New development orders permitting new developments without developer participation Policy 5.3: The county shall extend facilities and services to serve areas only within the existing Urban Service Area or as allowed by Policy 5.7 of the Potable Water Sub -Element and Policy 5.8 of the Sanitary Sewer Sub -Element of the Comprehensive Plan. Policy 5A The county shall coordinate with other local, state, and federal- agencies as well as private entities to create an efficient capital improvements schedule that provides the following general benefits while minimizing the financial burden of providing facilities and services: ➢ Reduction of overall capital and operating expenditures by the development of multi -use facilities; ➢ More efficient land use patterns and phasing; ➢ Reduction of overlapping, duplicating, and administrative procedures; ➢ Implementation of adopted physical, social, and economic goals and policies in a least -cost manner; ➢ 'Better coordination of public capital investment with private capital expenditures. Policy 5.5: The county shall continue utilizing enterprise funds for the provision of Sanitary Sewer, Potable Water, and Solid Waste facilities. The debt for enterprise funds is to be paid by user fees, capacity charges, and other appropriate sources. Policy 5.6: The county shall finance the capital cost of non -enterprise fund supported public facilities (e.g., roads, stormwater management, and parks) from current revenue, bond issues, impact fees, capacity charges, assessments, and other appropriate sources. Policy 5_7: The county shall use general obligation bonds and other sources to raise the funding required to provide those public facilities that cannot be constructed with user fees, revenue bonds, impact fees, capacity charges, or other dedicated revenue sources. Policy 5.8: Developments, which require public facility infrastructure improvements that will be financed by county debt, shall have their development orders conditioned on the issuance of the county debt or the substitution of a comparable amount of non -debt revenue. Policy 5.9: Pursuant to state law, the Schedule of Capital Improvements may be adjusted by ordinance and not deemed to be an amendment to the Comprehensive Plan when the amendment relates to corrections, updates, or modifications concerning costs, revenue sources, acceptance of facilities pursuant to dedications which are consistent with the Comprehensive Plan, or the date of construction of any facility except transportation facilities enumerated in the Schedule of Capital Improvements. For transportation facilities, a delay in construction of a facility which causes the Community Development Department Indian River County 57 Comprehensive Plan Capital Improvements Element level -of -service of that facility to deteriorate below the adopted minimum level -of -service standard for the roadway will require a comprehensive plan amendment. Policy 5_10: The county shall ensure that all capital improvements identified in the various elements of the Comprehensive Plan are completed according to schedule. The only acceptable delays will be those which are subject to one of the following: ➢ Projects providing capacity equal to, or greater than, the delayed project are accelerated within or added to the Schedule of Capital Improvements; ➢ Modification of development orders issued conditionally or subject to the concurrent availability of public facility capacity provided by the delayed project. Such modification shall restrict the allowable amount and schedule of development to that which can be served by the capacity of public facilities according to the revised schedule; or ➢ Amendment of the plan to reduce the adopted standard for the level -of -service for public facilities until the fiscal year in which the delayed project is scheduled to be completed. Policy 5.11: The county hereby adopts Appendix B as the County's Priority Transportation Capital Improvements Schedule. This schedule provides the project description, estimated date of commencement of actual construction, estimated date of completion, and estimated cost for projects that will increase roadway capacity on priority facilities. Implementation, Evaluation, and Monitoring Implementation An important part of any plan is its implementation. Implementation involves execution of the plan's policies. It involves taking actions and achieving results. For the Capital Improvements Element, implementation involves various activities. While some of these actions will be ongoing, others are activities that will be taken by certain points in time. For each policy in this element, table 6.19 identifies the type of action required, the responsible entity for taking the action, the timing, and whether or not the policy necessitates a capital expenditure. To implement the Capital Improvements Element, several different types of actions must be taken. These include: development of mechanisms for funding new facilities, adoption of land development regulations and ordinances, execution of interlocal agreements, coordination, and preparation of studies and evaluation and monitoring reports. Overall, the Capital Improvements Element implementation responsibility will rest with the Office of Management and Budget. Besides its responsibilities as identified in table 6.19, the planning department has the additional responsibility of ensuring that other entities discharge their responsibilities. This will entail notifying other applicable departments of capital expenditures to be Community Development Department Indian River County 58 Comprehensive Plan Capital Improvements Element included in their budgets, notifying other departments and groups of actions that must be taken, and assisting other departments and agencies in their plan implementation responsibilities. As part of the Capital Improvements Element, the county has developed a Concurrency Management Plan, which ensures the maintenance of the adopted level -of -service standards. Through the Concurrency Management Plan, the county will measure facility capacity, assess development demand, and maintain a Capital Improvements Program which ensures that the level -of -service standards are maintained. Table 6.19: Capital Improvement Element Implementation Matrix Policy Type of Action Responsibility Timing Capital Expenditure 1.1 Maintain the CIP OMB/PD 2006-2010 No 1.2 Follow the CIP PD 2006-2010 No 1.3 Prioritize capital improvement projects OMB/PD Ongoing No 1.4 Implement recommendations Appropriate County Departments 2006-2010 Yes 1.5 Prioritize and implement programs Appropriate County Departments 2006-2010 Yes 1.6 Maintain previous commitments BCC/PWD Ongoing No 1.7 Replacement and renewal of infrastructure Appropriate County Departments Ongoing No 1.8 Budget Management OMB Ongoing No 1.9 Define capital improvement PD/OMB Ongoing No 1.10 Capital Budget Maiagement OMB Ongoing No 1.11 Capital Improvements Management OMB Ongoing No 2.1 Define costal high hazard area DCA Ongoing No 2.2 Maintain density and intensity levels of current FLU Ma PD Ongoing No 2.3 Budget management Appropriate County Departments Ongoing Yes 2.4 Maintain LOS standards Appropriate County Departments Ongoing Yes 2.5 Funding mechanisms BCC/Private Developers Ongoing No 2.6 Infrastructure replacement strategy Appropriate County Departments Ongoing No 3.1 Maintain concurrency management system PD Ongoing No 3.2 Follow connection matrix of Comprehensive Plan Sub Elements Appropriate County Departments Ongoing No Community Development Department Indian River County 59 Comprehensive Plan Capital Improvements Element 3.3 Maintain adopted LOS standards PD Ongoing No 3.4 Land use decisions BCC Ongoing No 3.5 Adopt LOS standards BCC/Appropriate CountyDepartments Ongoing No 4.1 Impose regulations Appropriate County Ongoing Yes Departments 4.2 Conduct research OMB/PD Ongoing No 4.3 Work with municipalities BCC/Other Local Ongoing No Governments in IRC 5.1 Approve land use changes only if infrastructure can BCC Ongoing No support land use change 5.2 Prioritize capital improvements BCC/Appropriate County Ongoing No Departments 5.3 Extension of facilties and services BCC/Appropriate County Ongoing No Departments Appropriate County 5.4 Create an efficient capital improvements schedule Departments/Other Ongoing No Government Agencies 5.5 Utilize enterprise funds OMB Ongoing No 5.6 Finance non -enterprise fund supported projects OMB Ongoing No 5.7 Fund the construction of public facilities OMB Ongoing Yes 5.8 Permitting Requirements BCC/Appropriate County Ongoing No Departments 5.9 Amending the Schedule of Capital Improements BCC/OMB/PD Ongoing No 5.10 Complete the Schedule of Capital Improvements BCC/Appropriate County 2010 No 5.11 Adopt a Priority Transportation Capital Improvements BCC/PWD/MPO Ongoing No Schedule BCC = Board of County Coninissioners DCA = Department of Community Affairs FDOT = Florida Department of Transportation MPO = Metropolitan Planning Organization OMB = Office of Management and Budget PD = Planning Department PWD = Public Works Department Evaluation and Monitoring Procedures To be effective, a plan must not only provide a means for implementation; it must also provide a mechanism for assessing the plan's effectiveness. Generally, a plan's effectiveness can be judged by the degree to which the plan's objectives have been met. Since objectives are structured, as much as possible, to be measurable and to have specific timeframes, the plan's objectives are the benchmarks used as a basis to evaluate the plan. Community Development Department Indian River County 60 Comprehensive Plan Capital Improvements Element Table 6.20 identifies each of the objectives of the Capital Improvements Element. It also identifies the measures to be used to evaluate progress in achieving these objectives. 'Most of these measures are quantitative, such as adopting land development requirements, which ensure the maintenance of the level -of -service standards, adopting a capacity monitoring system and others. Besides the measures, table 6.20 also identifies timeframes associated with meeting the objectives. . The Planning Department staff will be responsible for monitoring and evaluating the Capital Improvement Element. This will involve collection of data and compilation of information regarding facility capacity, expansion, and new development permitted. This will be done on a regular basis. As part of the county's Concurrency Management System, the Planning Department will continually monitor the facility capacity to ensure that level -of -service standards will be maintained. Table 6.20: Capital Improvements Element Evaluation Matrix Objective Measure Timeframe 1 Existing deficiencies in county services and/or obsolete or wofnut facilities 2010 2 Land use density and intensity in Coastal High Hazard Area 2020 3 Level•of-service provided for county services 2020 4 Existence of appropriate Land Development Regulations 2020 5 Completion of the Schedule of Capital Improvements 2020 While monitoring will occur on a continual basis, formal evaluation of the Capital Improvements Element will occur annually. The formal evaluation and appraisal of the entire Comprehensive Plan will occur every five years. Besides assessing progress, the evaluation and appraisal process will also be used to determine whether the Capital Improvements Element objectives should be modified or expanded. In this way, the monitoring and evaluation of the Capital Improvements Element will not only provide a means of determining the degree of success of the plan's implementation; it will also provide a mechanism for evaluating needed changes to the plan element. As discussed in the above paragraphs, the evaluation and monitoring procedures identified for the Capital Improvements Element are basically the same for the entire Comprehensive Plan. These procedures will be used by the county to prepare the formal five-year Evaluation and Appraisal Reports. Included in those procedures are all the format requirements listed in 9J-5.005-(1)(a)(e), F.A.C. The monitoring and evaluation of this plan is critical to ensure that the policies are effective in achieving the plan's goals and objectives. Each individual element of the plan contains provisions and measures to be used in the review of the element. Each element contains an Implementation and Evaluation Matrix and monitoring procedures, which will be used to prepare the Five -Year Evaluation and Appraisal Reports. Community Development Department Indian River County 61 Comprehensive Plan Capital Improvements Element In addition, a great portion of the plan monitoring will be in conjunction with the concurrency management system which is designed to ensure that approved level -of -service standards are maintained and that sufficient capacity exists in the various services and facilities. Other evaluation of the plan or plan elements is likely to occur in the day to day application of the mandated regulations, which will result in plan amendments. The formal Evaluation and Appraisal Report required by law will provide a complete review of the plan and be conducted in compliance with the public participation procedures adopted for the development of this plan. As part of the monitoring system, all appropriate baseline data will be updated. Besides assessing progress, the evaluation and appraisal process will also be used to determine whether the objectives should be modified or expanded. In this way the monitoring and evaluation of the Comprehensive Plan Elements will not only provide a means of determining the degree of success of the plan's implementation; it will also provide a mechanism for evaluating needed changes to the plan element. Community Development Department Indian River County 62 Aj MW A omaNO m Ali 4z 44, NMI, co Ism f C� cq GS � all ME MR ills <57 RM An"ll All to 'jM :2 Nlg'4 Cl M mC'4 Cl 64 C. 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