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10-03-90 v MINUTES OF THE WORKSHOP MEETING OF THE ATLANTIC BEACH CITY COMMISSION AND COMMUNITY DEVELOPMENT BOARD HELD IN CITY HALL AT 7:30 PM ON WEDNESDAY, OCTOBER 3, 1990. PRESENT: William I. Gulliford, Mayor AND: Robert B. Cook Adelaide R. Tucker, and John W. Weldon, Commissioners AND: Community Development Board members: W. Gregg McCaulie, Chairman Johnny D. Bass Ruth Gregg Samuel Howie and Kathleen Russell AND: City staff: Kim D. Leinbach, City Manager Alan C. Jensen, City Attorney Maureen King, City Clerk Tom Bowles, Community Development Director AND: Gee & Jenson representatives: Bill Armentrout Jim Parks, and Andy May ABSENT: Commissioner Edwards had a prior engagement and was excused. Community Development Board members Louis MacDonell and Don Wolfson were absent. The meeting was held for the purpose of discussions between the City Commission and the Community Development Board relative to the city's comprehensive plan. Mayor Gulliford called the meeting to order and asked Tom Bowles for his comments on the matter. Mr. Bowles presented a list of Comprehensive Plan Elements and the city's commitment under each element, copy of which is attached and made a part hereof. He reminded those present the plan needed to be submitted to Tallahassee by October 31, 1990. The items were discussed in the order listed. 1. Land Use: Mr. Bowles reported the Department of Community Affairs (DCA) required the city to include a provision for stormwater management and preservation and conservation of natural environmental features. Discussion ensued relative to the city's proposed stormwater management program and the Mayor pointed out the fee would be levied before the program was implemented. Mr. Bowles said he felt the SWIM bill should be reviewed to see what was required. Mr. Bowles explained three key words which must be kept in mind when considering the comprehensive plan were: Concurrency - the necessary public facilities and services to maintain the adopted level of service; 1 Page Two Minutes of Workshop Meeting City Commission and Community Development Board October 3, 1990 Level of Service - Degree of service (i.e. Capacity) , provided or proposed to be provided by a facility (e.g. one playground per 2,500 population) ; and Capital Improvement Program - Means of financing and scheduling capital improvements (i.e. Wastewater treatment plant expansion) . After discussion, Andy May said specific dates for implementation of the stormwater management program were not included in Rule 9J-5 and he suggested the city use wording that would indicate the date for completion of the master drainage study would be as early as practical due to the magnitude of the study and the necessity for establishing the funding source. Commissioner Cook inquired whether it would be sufficient to have the design completed or whether the drainage system must be completed by the target date. Mr. Parks responded that DCA would probably accept a statement that the city standards would be those of the St. Johns River Water Management District. He felt the state would allow the city a reasonable time for planning and if the city was willing to commit to a 2-year planning time and implementation would be based on financial capability, and with systematic funding of improvements, it could extend over a 5 - 10 year period. After discussion it was decided 1995 was a realistic goal for planning and development of the stormwater management program and this date should remain unchanged. Discussion then ensued regarding natural environmental features and Mr. Parks pointed out it would be necessary to identify all the unique natural environmental features such as forests, marshes, etc. in Atlantic Beach. The Mayor said he felt Carl Walker could be helpful in this area. Mr. Parks said he wished to clarify what would happen if after the city adopted the plan it did not meet DCA requirements. He explained the plan would be rejected by Tallahassee and DCA representatives would come to Atlantic Beach to negotiate a Stipulated Agreement regarding the city's plans to change the plan to make it acceptable to DCA. Any further work on the plan must be in the form of a formal amendment with the appropriate public hearings. Mr. Parks said he felt important features would be environmental issues and affordable housing which would mean allowing mobile homes. He felt excluding mobile homes from the city would result in rejection of the comprehensive plan. Discussion then ensued regarding density standards and Mr. Parks pointed out the Growth Management Statute and 9J-5 both require coastal communities to discourage populations from locating in coastal high hazard areas and to direct populations away from such areas. He pointed out current zoning allowed high density in some areas along the northern coastal areas of the city and he asked if the city would wish to consider down-zoning that area to reduce the density. After brief discussion it was determined this would probably result in legal action Page Three Minutes of Workshop Meeting City Commission and Community Development Board October 3, 1990 against the city by many of the property owners involved. Mr. Parks also suggested the city could prohibit construction seaward of the coastal construction control line which would result in a reduction in density on those lots involved, but many of those present voiced strong objections to this. After further discussion Mr. Parks was directed to indicate that the city was discouraging density along the north end of the beach and offered as evidence approval of projects such as Tiffany by the Sea which had considerably reduced the density without having rezoned the area. 2. Traffic Circulation: Mr. Parks pointed out the main traffic problem in the city was at the intersection of Atlantic Boulevard and Mayport Road. While Atlantic Beach had no jurisdiction over these DOT roads, traffic using this intersection would impact the city and could be grounds for Atlantic Beach to deny building permits. Mayor Gulliford told Mr. Parks of the city's efforts to expedite the speedy construction of the Wonderwood Expressway and his personal efforts to have the flooding problem on Atlantic Boulevard just east of the Intracoastal Waterway bridge corrected. He felt the state and the county shared the responsibility for this problem. Mr. Parks said the plan should indicate that the city would try to get the Metropolitan Planning Organization (MPO) to give this project high priority to facilitate hurricane evacuation and because it does not provide an acceptable level of service. Mr. Parks said the traffic signals were not being maximized and he felt this was one area which could be improved. 3. Utilities: Andy May reported DCA had objected to the level of drainage services and Gee & Jenson proposed revising this to propose an interim level of service standard consistent with the St. Johns River Water Management District and it was agreed to accept this recommendation. 4. Coastal Management/Conservation: The French drains on the beach were briefly discussed and it was agreed this would be addressed in an overall drainage plan. In discussion regarding a program to reduce dune erosion, it was pointed out the city had constructed dune overwalks where possible and that one was still in litigation. Mr. Parks said they would include language indicating the city would abide by the state statute which provides that the public cannot be denied the use of access which has been used for many years. Mr. Parks stated that the DCA required the comprehensive plan to include a redevelopment plan in the event of a severe storm and he said they had established a target date for development of such a plan of one year after the land development regulations are adopted. Page Four Minutes of Workshop Meeting City Commission and Community Development Board October 3, 1990 With reference to critical resources and habitats for threatened and endangered species, Mr. Parks said they had included a long list of what species could be in the area but this was not acceptable to DCA. He said DCA had asked for a list of endangered species and habitats actually present. After discussion it was agreed to request the Audubon Society to do such a survey and that Greenpeace may also be helpful. 5. Recreation: Mr. Parks said the DCA requested coordination between the public and private providers of recreation facilities in the area and that this should include a five-year inventory of such facilities. Ms. Blanchard had provided information regarding the facilities which were shared by the beaches communities, such as Atlantic Beach Elementary School, Beaches Aquatic swimming pool, Selva Marina Country Club, Hanna Park, etc. , and this had been included in the plan. It was generally agreed the city should not be required to survey private recreational facilities. Beach parking was also discussed and Mr. Parks said DCA had indicated that Atlantic Beach was not doing enough to provide parking at beach accesses. After discussion it was determined this was a regional problem and while the city agreed to work toward solving the parking problem, primary funding should be provided by the county and/or the state. 6. Housing: Mr. Parks explained the comprehensive plan had projected population growth and DCA required the plan to demonstrate that the housing needs of the increased population can be met. Discussion ensued regarding mobile homes and Mr. Parks explained that DCA required plans to include affordable housing and would not approve a plan which would exclude mobile homes. In discussion it was determined the city could include a provision that would prohibit mobile homes within the coastal zone. Mr. Parks also explained DCA required the city to identify historic buildings and archeological resources and said grant funds were available for such studies. It was agreed to contact Ellen Jensen of the Beaches Area Historical Society to see if that organization could be helpful in this respect. 7. Intergovernmental Coordination: Mr. Parks suggested the formation of a Beach Front Development Coordinating Organization which would be responsible for monitoring Page Five Minutes of Workshop Meeting City Commission and Community Development Board October 3, 1990 proposed development in areas outside the city boundaries which would affect Atlantic Beach, eg. development that would increase traffic on Atlantic Beach streets and roads in significant amounts to prohibit the city from issuing building permits. Mayor Gulliford said he had considered the idea of the formation of a new county encompassing the beaches communities. He said this would provide for better control of some aspects over which the city currently has no jurisdiction. 8. Capital Improvement Program: Mayor Gulliford said this was an annual function of the City Commission which was based on staff review and recommendations. Mr Parks said this annual plan would need to be submitted to Tallahassee. Having discussed all the items on the list prepared by Tom Bowles, Jim Parks said he also had prepared a list of matters on which he required direction by the City Commission, copy of which is attached hereto and made a part hereof. Some of these matters had been included in Mr. Bowles' list and had already been addressed. 1. The density designations of the ocean front properties. . . This matter had been discussed earlier. 2. Does the city agree with the comprehensive plan statements that there are no significant needs for redevelopment in the city? Mayor Gulliford explained the city's plans to set up a non-profit housing authority which would be used to fund low interest mortgage rates to rehabilitate existing homes or construct new homes in the Donner Park area. The City Manager also explained Atlantic Beach was currently rehabilitating houses with CDBG entitlements through the City of Jacksonville and this would continue through next year. Mr. Parks suggested including a statement to the effect city staff would analyze and complete a report to the City Commission by January 1992 on the feasibility of establishing a low interest loan pool, and those present concurred in this suggestion. 3. Does the city agree with the new language added that the city would permit mobile homes. . . Already discussed. 4. What is the status of the beach renourishment program anticipated for 1989? Commissioner Weldon said the City of Jacksonville had indicated the beach renourishment would begin after the winter storm season, and Mayor Page Six Minutes of Workshop Meeting City Commission and Community Development Board October 3, 1990 Gulliford suggested Mr. Parks contact the Corps of Engineers regarding beach renourishment. 5. Does the city agree to rewrite hurricane evacuation analysis. . . Mayor Gulliford reported that according to state mandate hurricane evacuation was a county function. Mr. Parks said he had information regarding the number of people to be evacuated, the hurricane shelters, without which he felt the plan would not be accepted. The plan also needed to include information on how the city would coordinate its plan with the other communities. Mr. Parks said the plan provided for a 12-hour evacuation and the City Manager said in the hurricane plan recently developed by city staff, evacuation time had been estimated at 24 hours. It was pointed out the only evacuation route which had been designated by the county for Atlantic Beach, had a low area which was subject to flooding during a minor storm. The city had made numerous attempts to have the Department of Transportation rectify the problem and had aggressively pursued the construction of the Wonderwood Expressway, both of which would facilitate the speedy evacuation of the north beaches area. The City felt it had taken what steps it could to alert the appropriate agencies as to the problem and to date had had no success. 8. What does the city agree to state as its future debt capacity? Mr. Parks said DCA required the city to state what it would use to determine what the maximum indebtedness of the city would be. The City Manager pointed out the city had employed the services of a financial consultant whose input would be used to make such determinations. 10. The Concurrency Management System. . . Mr. Parks recommended the city should carefully read what the city staff would be required to do to meet the concurrency requirements. He said it would place an added burden on the staff to keep records and make the required annual reports. Discussion then ensued and Mr. Parks explained the definitions of goals, objectives, and policies as provided in rule 9J-5. The Mayor inquired into the procedure to be followed after the city responded to DCA objections. Mr. Parks explained that if DCA did not approve the amended plan they would send representatives to meet with Atlantic Beach officials to negotiate to resolve the matters in question. If those negotiations ended in impasse, a hearing officer would be selected to review the matter. Page Seven Minutes of Workshop Meeting City Commission and Community Development Board October 3, 1990 Mayor Gulliford referred to the suggestion that the city include a policy which addresses beach front lighting restriction for the protection of sea turtles. The Mayor said he was opposed to passing an ordinance to regulate lighting and the City Manager said the city had reviewed the lighting and now had sodium vapor lighting along the beach. Tom Bowles pointed out amendments to the comprehensive plan were limited to two per year and that the Florida Regional Planning Council was initiating a charge in order to recover costs of reviewing local government comprehensive plan amendments. These costs were detailed in a letter to Mr. Bowles and would be in the neighborhood of $5,000.00. The City Manager reported that he and Mr. Bowles were planning to attend the next meeting of the Florida Regional Planning Council. Mayor Gulliford inquired whether the Northeast Florida League of Cities had addressed this issue and the City Manager reported the Northeast League was forming a committee to receive complaints and concerns regarding comprehensive plans. Mr. Parks reported that the Florida Regional Planning Council's comments included no objections to the plan but had listed a number of things which they felt were missing from the plan. After a full discussion on the Matter Mr. Parks said he would meet with city staff regarding other matters and if he felt a further meeting with the City Commission was required he would arrange this with the City Manager. There being no further discussion, the Mayor declared the meeting adjourned. /10A--"7"1- Maureen LMaureen King, City Clerk SPECIFIC QUESTIONS REQUIRING DISCUSSION BY THE CITY AND POLICY DIRECTION FOR THE CONSULTANT 1 . The density designations of the oceanfront properties are shown in the Future Land Use Plan to reflect current zoning densities even though existing development is at a lower density. Does the City want to consider reducing the density of development in the oceanfront area as suggested in the agency objections? (Note DCA Objection 2 under Future Land Use Element and DER Objection 9 under Coastal Management/ Conservation Element. ) 2 . Does the City agree with the Comprehensive Plan statements that there are no significant needs for redevelopment in the City? 3 . Does the City agree with the new language added that the City will permit mobile homes as required by DCA Objection 6 on page 14 of the report? 4 . What is the status of the beach renourishment program anticipated for 1989? 5. Does the City desire to rewrite hurricane evacuation analysis based on 1988 study which was not available when the Coastal Management/Conservation element was prepared? This requirement is of questionable validity in our opinion. - 1 - 6 . Does the City agree to complete a Master Drainage Plan by October 30 , 1992 , as requested in DCA Objection 13 on page 25? ' 7 . We have not found survey data indicating "known dominant species" and "endangered, threatened or special concern" species specific to Atlantic Beach and therefore propose to conduct a survey to make such determination as required by DCA Objection 2 for the Conservation Element appearing on page 41 . Does the City desire to make this commitment? 8 . What does the City desire to state as its future debt capacity ( i. e. , ratio of total debt service to total revenue or ratio of outstanding capital indebtedness to property tax base) element? This is a requirement for the Capital Improvements element. 9. In response to Objection 16 under the Housing Element, it is stated in new Objective 2 .1 and Policies 2 .1 .1 and 2 .1 .2 of the Housing element "that the City will conduct a survey of housing to determine housing planning, historic significance and to establish preservation standards" . Does the City agree with this language? 10. The Concurrency Management System (New Chapter IX) , prepared by the Consultant in response to requirements imposed following preparation of the draft comprehensive plan, should carefully be reviewed by the City inasmuch as it is a new chapter and was not reviewed in the draft submittal to DCA. - 2 - Comprehensive Plan Elements with Selected City Commitments as Presented in the Draft Comprehensive Plan 1. Land Use: a. Acceptance of additional land development regulations (stormwater management and natural environmental features) 'b. Incorporate revised density standards in land development regulation for residential and non-residential development. c. Implement standards of concurrence on applications for new development. 2. Traffic Circulation: 4. Carry-out traffic studies for determination of Levels of Service (LOS) on city streets and roads, as required. 3. Utilities: a. Adopt level of service standards for water, wastewater, and storm water facilities. 4. Coastal Management/Conservation a. Remove stormwater exfiltration system from the beach. b. Adopt a program to reduce dune erosion resulting from pedestrian traffic. c. Prepare plans for beach access incorporating crossover structures, revegitative plantings, signage, etc. d. Prepare a plan of alternative redevelopment strategies in the event of a severe storm. e. Identify all critical resources and habitats for threatened and endangered species. 5. Recreation: a. Inventory (every 5 years) public and private recreation resources to determine service adequacies. b. Work with the City of Jacksonville and adjacent beach communities to develop an areawide beach automobile parking plan. c. Amend land development regulation to provide for open space. 6. Housing: a. Assist private sector to provide 600 new dwellings between 1987 and 1995 and an additional 600 new dwelling units between 1995 and 2005. b. Amend land development regulations to provide for the placement of mobile homes. c. Promote the location of group homes and foster care facilities in residential districts currently provided for in zoning regulations. d. Financially support at a 50% level citywide survey to identify historic dwellings and structures. 7. Intergovernmental Coordination: a. Promote the formation of a "Beachfront Development Coordinating Board" for coordinated land use planning in the three beach communities. b. Participate in programs and activities of the Metropolitan Planning Organization and the Northeast Florida Planning council. 8. Capital Improvement Program: a. Annually prepare and adopt a CIP. 9. Public participation: a. Public participation is to be viewed as fundamental to the success of the comprehensive planning program.