HomeMy WebLinkAbout07012010 LPA Agenda1. CALL TO ORDER:
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3. ROLL CALL:
4. PUBLIC HEARING:
5. ADJOURNMENT:
CIT O F IAAN
SE
HOME OF PELICAN ISLAND
1225 MAIN STREET SEBASTIAN, FLORIDA 32958
TELEPHONE (772) 589 -5518 FAX (772) 388 -8248
AGENDA
LOCAL PLANNING AGENCY
(PLANNING AND ZONING COMMISSION)
THURSDAY, JULY 1, 2010
Immediately following Regular Meeting
EAR PUBLIC HEARING
A. Review the Evaluation and Appraisal Report {EAR} of the
Sebastian Comprehensive Plan Make Recommendation to City Council
regarding its approval
ANY PERSON WHO DECIDES TO APPEAL ANY DECISION MADE ON THE ABOVE MATTERS,
WILL NEED A RECORD OF THE PROCEEDINGS AND MAY NEED TO ENSURE THAT A VERBATIM
RECORD OF THE PROCEEDINGS IS MADE, WHICH RECORD INCLUDES THE TESTIMONY AND
EVIDENCE UPON WHICH APPEAL IS TO BE HEARD. SAID APPEAL MUST BE FILED WITH THE CITY
CLERK'S OFFICE WITHIN TEN DAYS OF THE DATE OF ACTION. (286.0105 F.S.)
IN COMPLIANCE WITH THE AMERICANS WITH DISABILITIES ACT (ADA), ANYONE WHO NEEDS
SPECIAL ACCOMMODATIONS FOR THE MEETING SHOULD CONTACT THE CITY'S ADA COORDINATOR
AT (772)- 589 -5330 AT LEAST 48 HOURS PRIOR TO THE MEETING.
TWO OR MORE ELECTED OFFICIALS MAY BE IN ATTENDANCE. PUBLIC INVITED TO
ATTEND.
HOME OF PELICAN ISLAND
City of Sebastian
Growth Management Department
1225 MAIN STREET SEBASTIAN, FLORIDA 32958
TELEPHONE (772) 589 -5518 FAX (772) 388 -8248
MEMORANDUM
DATE: June 23, 2010
TO: Local Planning Agency/ Planning and Zoning Commission
FROM: Rebecca Grohall, Director
SUBJECT: Evaluation and Appraisal Report (EAR)
The Sebastian Comprehensive Plan is a living document designed to steer development in the City.
Changes in the community are reflected in amendments to the plan. Every seven years, the
Department of Community Affairs (DCA) requires the City to evaluate the effectiveness of the City's
Comprehensive Plan. This evaluation is known as the "EAR the Evaluation and Appraisal Report.
A draft of the City's Comprehensive Plan EAR has been compiled by our consultant, Outlier Planning.
The document has been prepared following workshops, scoping meetings, individual interviews, input
from City committees, comments from neighboring jurisdictions, data research and map updates.
The EAR contains the following information, as required or recommended by Florida Statutes:
Table of Contents
i. Executive Summary
ii. Introduction
iii. City Profile
iv. Levels of Service /Financial Feasibility Analysis
v. Major Issues Analysis
vi. Consistency with State and Regional Requirements
vii. Other Statutory Requirements
viii. Summary of Recommendations
List of Maps
List of Tables and Figures
Please review the draft EAR, hold the public hearing, and make a recommendation to City Council.
Table of Contents
Executive Summary 1
II. Introduction 3
I11. City Profile 4
Population 4
Land Area Annexations 7
Existing Land Use 7
Vacant Undeveloped Land 12
Projected Land Use Needs 15
IV. Levels of Service Financial Feasibility Analysis 18
Transportation 18
Sanitary Sewer 19
Solid Waste 19
Potable Water 20
Parks, Recreation and Open Space 20
Drainage 20
Schools 21
Financial Feasibility 21
V. Major Issues Analysis 23
Major Issue 1: Connectivity of arterial collector roads and
alternative transportation modes 24
Major Issue #2: Economic Development and Job Creation
38
Major Issue #3: Balancing Sustainable Growth with Protection of
Community Character 46
Major Issue #4: Future Development and Funding of the Park
and Recreation System 52
Major Issue #5: Annexation and Service Delivery 63
VI. Consistency with State and Regional Requirements 72
Chapter 163, Part II, Florida Statutes 73
Chapter 9J -5, Florida Administrative Code 83
State Comprehensive Plan 90
Treasure Coast Strategic Regional Policy Plan 92
VII. Other Statutory Requirements 93
Coordination with Public School Facilities 93
Water Needs 93
CHHA Property Rights Evaluation 93
Common Methodology for Measuring Impacts on Transportation
Facilities
VIII. Summary of Recommendations
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
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95
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Map 1: Annexations Since 1995 8
Map 2: 1998 Future Land Use Map 10
Map 3: Existing Land Use 13
Map 4: Future Land Use 14
Map 5: Vacant Land 16
Map 6: LOS D Roadway Segments 2007 25
Map 7: LOS D Roadway Segments 2015 26
Map 8: LOS D Roadway Segments 2025 27
Map 9: Existing Sebastian Transit Routes 33
Map 10: North Indian River County Greenways Plan Sebastian (from the
Indian River MPO's North Indian River County Greenways Plan, 2008) 35
Map 11: Existing Zoning Overlays 48
Map 12: Parks Sebastian Vicinity 53
Map 13: Planned Greenways 59
Map 14: Blueways Existing and Potential Resources 60
Map 15: Interlocal Service Boundary Agreement Map (Revised January
2009) 67
Map 16: Proposed Annexation Reserve Area with County Future Land Use 68
List of Maps
List of Tables and Figures
Table 1: 1997 EAR Population Projections v. Actual Population 4
Table 2: Race by Percentage, 1990 and Today 6
Table 3: Educational Attainment (Population 25 6
Table 4: Occupation of Workers 16 and Over 6
Table 5: Industry of Workers 16 and Over 7
Table 6: Existing Land Use in 1995 9
Table 7: Existing Land Use in 2010 9
Table 8: Future Land Use Map Amendments Since the 1997 EAR 11
Table 9: Development Potential of Vacant Land 12
Table 10: Existing /Projected LOS D Roadways 18
Table 11: Current and Projected Park Facility Needs 20
Table 12: Existing /Projected LOS D Roadways 24
Table 13: Means of Transportation to Work 32
Table 14: Place of Work for Employed Population 41
Table 15: Current and Projected Park Facility Needs 52
Figure 1: Population Pyramid, 1990 Census 5
Figure 2: Population Pyramid, 2006 -2008 ACS 5
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
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I. Executive Summary
The City of Sebastian is a small, quiet community on Florida's east coast between Vero Beach
and Melbourne, with easy access to major metropolitan areas in South Florida and Orlando.
Sebastian is the largest municipality in Indian River County, and is the population center of the
northern part of the County. Natural beauty surrounds Sebastian, including the Indian River
Lagoon and coastal resources that gave rise to the City's history as a fishing settlement.
The Evaluation and Appraisal Report (EAR) is essentially a summary audit of the City's
Comprehensive Plan, and is required of all local governments in Florida. The EAR process is
used to determine successes and failures of the Plan and its implementation, ensure continued
compliance with state requirements and regional plans, respond to new data and update the
Plan to address new issues and opportunities.
The City's Comprehensive Plan was extensively updated in 2009, including major updates to
the Future Land Use Element, Transportation Element, Housing Element, Intergovernmental
Coordination Element, Capital Improvements Element and Public School Facilities Element. As
part of the EAR -Based Amendments, the data and analysis for the remaining elements should
be updated.
The City held a series of public workshops and hearings in the Spring of 2010 to identify the
major issues for detailed analysis in the EAR. This process resulted in unanimous approval by
the City Council of the following five major issues:
1. Connectivity of Arterial /Collector Roadways and Alternative Modes of Transportation
2. Economic Development and Job Creation
3. Balancing Sustainable Growth with Protection of Community Character
4. Future Development and Funding of the Park and Recreation System
5. Annexation and Service Delivery
Like the rest of the country, and much of the rest of the work, Florida has been mired in a
severe economic downturn for the last few years. The effects on Sebastian's residents has
been severe, especially in terms of unemployment, partly because the Treasure Coast region is
heavily dependent upon construction as an economic driver, one of the hardest hit sectors in the
downturn. The poor economy has also affected the City's fiscal situation, and difficult decisions
have had to be made in the City's budget. However, Sebastian has managed to avoid some of
the problems faced by other communities, such as severe property maintenance issues related
to home foreclosures. While economic development is a perennial issue for almost any city, the
downturn has made the topic more stark and pressing.
The recommendations in the EAR, especially those related to the five major issues, are largely
built around providing the opportunity for long -term economic competitiveness for the City.
These recommendations recognize that the City's character and quality of life, as well as its
ability to foster and attract businesses that contribute to the green /sustainable economy, are
essential to long term economic growth and prosperity. Included in the recommendations are
strategies to protect and enhance the unique character of the Riverfront area; expand both
recreational opportunities and opportunities for pedestrian /bicycle circulation through
development of a greenway system in conjunction with Indian River County; diversify housing
opportunities in order to ensure a well balanced community and attract young professionals and
entrepreneurs; align land use and development form with transportation planning, including
encouraging alternative forms of transportation; carefully planning for the City's expansion to
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
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HJ1tt Jf Pflli Al ISt „D
provide land for housing and employment opportunities and ensure maximum efficiency in
service delivery; ensure high quality, integrated and compatible development in the City's
potential annexation areas through coordination and join planning initiatives with Indian River
County; maximize use of the natural resources in and near the City for recreational opportunities
and eco- tourism; and, attract green and sustainable industries and other targeted industries to
the City.
The recommendations resulting from the EAR analysis (see Section VIII Summary of
Recommendations) will not only ensure that Sebastian continues to meet the mandates of
Florida's growth management laws, but also set the City on a path to maintain and enhance its
unique character and quality of life, and provide for a bright, prosperous future for current and
future residents.
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
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II. Introduction
The City of Sebastian is a small, quiet community on Florida's east coast between Vero Beach
and Melbourne, with easy access to major metropolitan areas in South Florida and Orlando.
Sebastian is the largest municipality in Indian River County and is the population center of the
northern part of the County. Natural beauty surrounds Sebastian, including the Indian River
Lagoon and coastal resources that gave rise to the City's history as a fishing settlement.
The Evaluation and Appraisal Report (EAR) process is undertaken primarily in response to
requirements of state law, specifically s. 163.3191, Florida Statutes (F.S.). Specifically, the
purpose of the EAR is to: identify major issues for the community; review past actions of the
City in implementing the Comprehensive Plan since the last EAR; assess the degree to which
plan objectives have been achieved; assess both successes and shortcomings of the plan;
identify ways that the Plan should be changed; respond to changing conditions and trends
affecting the City; respond to the need for new data; respond to changes in state requirements
and the Treasure Coast Strategic Regional Policy Plan; and, ensure effective intergovernmental
coordination. Under Florida's growth management system, the EAR is an important opportunity
for monitoring and evaluation, an essential part of comprehensive planning. Through the EAR,
the City will reassess its plan and recommend adjustments that will enable the community to
meet its anticipated challenges, ensuring a continued high quality of life for Sebastian residents.
The EAR has been developed with an extensive public involvement component. On March 25,
2010 an advertised public workshop was held with members of the Local Planning Agency
(LPA) and members of the public, with exercises to identify a preliminary list of major issues.
On April 1, 2010 the City held an advertised scoping meeting with LPA members and the public,
with representatives of state /regional agencies and other local government invited to attend. At
this meeting, the list of major issues was agreed by consensus to be recommended to the City
Council. On April 14, 2010, at an advertised public hearing, the City Council unanimously
approved the major issues. The Proposed EAR was presented to the LPA at an advertised
public hearing for transmittal to DCA for courtesy review, and the final EAR was presented for
approval to both the LPA and City Council at advertised public hearings.
In addition to public workshops and hearings, members of the public were provided the
opportunity to directly participate in creation of the EAR throughout the process. Draft work
products were posted on the project website which can be accessed at SebastianEAR.com
to allow the opportunity for members of the public to review and offer comments. Additionally,
the EAR consultant's contact information was advertised extensively at the public workshops
and scoping meeting early in the process, and members of the public were encouraged to offer
comments, suggestions and information freely throughout the process.
The EAR is also required to identify the schedule for adopting EAR -Based Amendments to the
Comprehensive Plan. Adoption of the EAR by the City is anticipated by August 1, 2010, and a
final determination of sufficiency from DCA is expected on approximately November 1, 2010.
The EAR -Based Amendments, therefore, would be adopted no later than April 1, 2012.
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
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Year 1997 EAR Actual Difference
Projection
1990
10,248
10,248
1995
13,488
13,488
2000
17,153
16,188
-965
2005
20,798
20,048
-750
2010
24,449
22,722
-1,727
III. City Profile
A. Population
According to the Bureau of Economic and Business Research (BEBR) at the University of
Florida, Sebastian's 2009 population was 22,722. As seen in the table below, population growth
in Sebastian has lagged behind that projected in the 1997 Evaluation and Appraisal Report
(EAR). The current population is approximately seven percent below what was anticipated in
the 1997 EAR.
Table 1: 1997 EAR Population Projections vs. Actual Population
Offical Census figure; all other actual figures are from Florida BEBR estimates.
2009 estimate; 2010 estimate is not yet available
Nonetheless, growth has been substantial, and is expected to continue to be so. The City's
Comprehensive Plan uses population projections provided by the Shimberg Center, which
project a 2015 population of 28,069, a 2020 population of 31,734 and a 2025 population of
35,115.
According to the latest Census American Community Survey (ACS) information (collected 2006
through 2008), the median age in Sebastian is 47.1, slightly higher than the 46.9 recorded by
the 2000 Census. It is also slightly higher than the Indian River County figure (45.4), and much
higher than the median age of Florida (40.1) and the nation (36.7). The City's relatively high
median age reflects the area's status as a major retirement destination.
The population pyramids on the next page compare the age distribution of the population in
1990 with those from the latest ACS. These show that, while population growth in the City has
been widely distributed through age groups, the community's demographics reflect a population
that continues to age.
The City has become marginally more diverse racially and ethnically since 1990, as the table
below shows. Sebastian remains overwhelmingly White (94.0 percent) and non Hispanic (96.1
percent). While their proportions remain relatively small, African Americans and Hispanics have
each more than doubled as a proportion of the City's population since 1990.
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
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10 %11 Of Pt LI, A\ rta\o
Sebastian Indian River County
Education Level 2006-
1990 2006 -2008 1990 2008
Less than 9 grade
7.0%
1.9%
7.1%
4.3%
9 through 12 grade, no diploma
19.5%
10.0%
16.5%
9.0%
High school graduate (includes equivalency)
38.3%
38.8%
30.6%
29.4%
Some college, no degree
18.4%
22.8%
20.9%
22.6%
Associates degree
6.9%
10.2%
5.83%
8.2%
Bachelors degree
6.9%
11.0%
13.2%
16.9%
Graduate or professional degree
3.1%
5.3%
5.9%
9.6%
Occupation
Sebastian
Indian River
County
Management, professional and related
34.4%
31.2%
Services
18.8%
20.6%
Sales and office
24.4%
24.8%
Farming, fishing and forestry
0.5%
1.4%
Construction, extraction, maintenance and repair
13.8%
13.3%
Production, transportation and material moving
8.2%
8.6%
Race 1990 2006 2008
ACS
White
97.4%
94.0%
Black /African American
1.1%
2.8%
American Indian /Alaska Native
0.2%
Asian /Pacific Islander
1.0%
2.6
Other /Multiple Races
0.3%
1.1%
Table 2: Race by Percentage, 1990 and Toda
Source: 1990 Census; 2006 -2008 ACS
Not sufficient sample data to reports results
Unlike the 1990 Census, the ACS reports "Asian" and "Native Hawaiian /Pacific Islander"
separately. Asians made up 2.6% in the ACS, but there was insufficient sample data to report for
"Native Hawaiian /Pacific Islander"
The City's level of educational attainment has risen substantially since 1990. The percentage of
the population without a high school diploma has dropped from 26.5 to 11.9. At the same time,
16.3 percent of residents now have at least a bachelor's degree, far higher than the 10.0
percent reported in 1990.
Table 3: Educational Attainment (Population 25+
Source: 1990 Census; 2006 -2008 ACS
The tables below show the percentage of the City's and County's workforces by occupation, as
well as by industry. These numbers are similar between the City and County. There is a heavy
reliance upon construction in the community a sector of the economy hit particularly hard by
the current downturn and relatively few jobs associated with primary (natural resource related)
industries or manufacturing.
Table 4: Occuuation of Workers 16 and Over
Source: 2006 -2008 ACS
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
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10 1 t *4 Pt I.li 4\ 1St AND
Occupation
Sebastian
Indian River
County
Agriculture, forestry, fishing and hunting, and
mining
0.0
2.4
Construction
14.2%
13.8%
Manufacturing
5.4%
5.5%
Wholesale trade
2.4%
2.8%
Retail trade
15.3%
13.8%
Transportation and warehousing, and utilities
2.7%
3.9%
Information
2.0%
1.4%
Finance and insurance, and real estate and rental
and leasing
6.1%
7.7%
Professional, scientific, and management, and
administrative and waste management services
12.9%
12.1%
Educational services, and health care and social
assistance
22.3%
19.5%
Arts, entertainment, and recreation, and
accommodation and food services
10.4%
9.0%
Other services, except public administration
3.3%
5.1%
Public administration
3.0%
3.1%
Table 5: Industry of Workers 16 and Over
Source: 2006 -2008 ACS
B. Land Area /Annexations
According to GIS calculations, the City's total land area is 9,218.5 acres, an increase of 575.5
acres, or 6.7 percent, over the total in 1995 (the data presented in the 1997 EAR). As shown on
Map 1, annexations since 1995 have primarily involved larger tracts on the City's southern
boundary and on the CR -512 corridor west of the City's former boundaries, as well as smaller,
piecemeal annexations to the east and northeast.
C. Existing Land Use
The tables below show existing land uses in 1995 and in 2010. These sets of data are not
directly comparable, as the 2010 existing land use is presented in terms of the City's future land
use categories. Notable points about the City's 2010 existing land use pattern include: nearly
12 percent of the City's land is in conservation use; undeveloped /vacant land has, through
annexations, remained at roughly the same level since 1995 even as development continued;
and, assuming that "multi- family" in 1995 and medium density residential in 2010 are roughly
similar, there has been little or no development of multi family housing since 1995.
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
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NOW 01 fflh Kq.AND
Land Use Acres Percentage
Conservation
1,074.06
11.64
Agriculture
54.21
0.59
Very Low Density Residential
.427.53
4.64
Low Density Residential
2,550.95
27.67
Mobile Homes
166.05
1.80
Medium Density Residential
154.46
1.68
Commercial Limited
3.98
0.04
Commercial General
146.15
1.59
Commercial 512
23.29
0.25
Riverfront Mixed Use
4.15
0.05
Industrial
86.34
0.94
Institutional (including parks,
government facilities, schools,
etc.)
1,112.79
12.07
Rights -of -Way (ROW)
streets, drainage, public
waterways, etc.
1,831.03
19.86
Undeveloped /Vacant
1,583.50
17.19
Total Acreage
9,218.50
100
Land Use Acres Percentage
Single Family
4,050.03
47.86
Mobile Home
271.67
3.21
Multi- Family
151.23
1.79
Commercial
290.88
3.44
Industrial
142.13
1.68
Institutional
254.01
3.00
Golf Course
156.00
1.84
Parks
63.00
0.74
Street /Drainage ROW
1,246.45
14.73
Airport
454.00
5.36
Undeveloped /Vacant
1,563.00
18.47
Total Acreage
8,463.00
100
Table 6: Existing Land Use in 1995
Source: City of Sebastian 1997 EAR
Table 7: Existing Land Use in 2010
Source: Indian River County Property Appraiser data; City of Sebastian
EARs are required by statute to compare the location of development anticipated in the Plan to
where development has actually taken place. Map 2 is the Future Land Use Map (FLUM)
submitted as part of the City's 1998 EAR -based amendments, which is the Plan's expected
development pattern. Table 8 below shows FLUM amendments since the 1997 EAR. Most of
these amendments are the result of annexations, and simply apply an equivalent City land use
category in place of a County category. However, some of these amendments indicate policy
shifts, including those highlighted in the table.
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
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SEBASTIAN
111/ 415.
HO■L tN P6LIC 4S NAND
Year Location Acres Old FLU New FLU
2009
South of 99 Street/Vickers Road,
west of the F.E.C. Railroad (Bridgeton
Properties annexation)
5.9
Residential, 8 units
per acre (Indian River
County)
Industrial
2009
13225 US -1 (Shady Rest Mobile
Home Park)
17.14
Mobile Home Rental
Park, 8 units per acre
(Indian River County)
Riverfront
Mixed -Use
2009
West of US -1, between Shady Rest
Mobile Home Park and St. Sebastian
Catholic Church (Mustacchia
annexation)
3
Low Density
Residential
Riverfront
Mixed -Use
2007
9707 US -1 (9707 annexation)
3.87
Commercial /Industrial
(Indian River County)
General
Commercial
2005
West of Cross Creek Lake Estates
along Powerline Road south of Barber
Street
25.5
Residential, 1 unit per
acre (Indian River
County)
Low Density
Residential
2003
US -1 near the City's northern limit
(Shalhoub Part II annexation)
.75
Residential, 8 units
per acre (Indian River
County)
Riverfront
Mixed -Use
2003
East side of 90 Avenue
approximately .5 miles north of
Wabasso Road.
74
Residential, 3 units
per acre (Indian River
County)
Low Density
Residential
2003
Along Powerline Road west of Barber
Street
115
Residential, 1 unit per
acre (Indian River
County)
Low Density
Residential
2003
West of Sebastian River South Prong
and east of CR 510
38.27
Residential, 1 unit per
acre (Indian River
County)
Low Density
Residential
2003
Adjacent to Sebastian Elementary
School
56.25
Low Density
Residential, 6 units
per acre (Indian River
County)
Low Density
Residential
2003
East and adjacent to Sebastian River
Middle School (Sebastian Crossings
Parcel B)
45.69
Residential, 3 units
per acre (Indian River
County)
Low Density
Residential
2003
North of CR 510 and southeast of
Elkcam Dam
152.21
Residential, I unit per
acre (Indian River
County)
Low Density
Residential
2003
East and adjacent to Sebastian River
Middle School
14.4
Residential, 3 units
per acre (Indian River
County)
Commercial
General
2001
North of Kildare Drive, south of S.
Fischer Circle, approximately
80
Low Density
Residential, 6 units
per acre (Indian River
County)
Medium Density
Residential
2000
Adjacent to 129 /Dale Street just
south of 130 /Gibson Street
14.85
Low Density
Residential
Industrial
2000
Southwest of Wimbrow Dr
7.57
Commercial 512
Commercial
General
Table 8: Future Land Use Man Amendments Since the 1997 EAR
Sources: City of Sebastian; Department of Community Affairs Plans /Amendments Archive
Comparison of the 1998 FLUM with the 2010 Existing Land Use Map (page 13) also helps to
determine the relationship between the Plan's anticipated land use pattern and that which has
City of Sebastian 2010 EAR DRAFT 6 15 2010
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HOW 01 PEIIiA' KI'.V
Maximum Density Development
Future Land Use Acres Potential
Density /Intensity Factor
Capacity
Very Low Density
Residential
514.35
3 du /ac
90%
1,388 units
Low Density
Residential
762.04
5 du /ac
80%
3,048 units
Mobile Homes
31.31
5 du /ac
75%
117 units
Medium Density
Residential
67.48
8 du /ac
75%
404 units
Commercial Limited
7.92
0.6 FAR
N/A
206,997 sq. ft.
Commercial General
80.00
0.6 FAR
N/A
2,090,880 sq. ft.
Commercial 512
16.08
0.5 FAR
N/A
350,222 sq. ft.
Riverfront Mixed -Use
34.17
8 du /ac
0.6 FAR
30%
82 units/
893,060 sq. ft.
Industrial
51.81
0.5 FAR
N/A
1,128,421 sq. ft.
Institutional
18.38
0.6 FAR
N/A
480,379 sq. ft.
Total Vacant Land
1,583.50
5,039 residential
units
5,149,959 sq. ft.
non residential
actually emerged. Of that land that has been developed, the land use pattern has adhered
closely to that expected. However, there have been significant exceptions. One is the
Sebastian Harbor Preserve, a rectangular- shaped area of over 150 acres north of Engler Drive
and east of Easy Street. This area had been designated for Low Density Residential (up to four
units per acre), but is now in conservation use. Also, nearly 15 acres adjacent to 129 /Dale
Street just south of 130 /Gibson Street a FLUM amendment noted above in 2000 has been
developed for industrial uses, whereas the Plan anticipated this parcel to be developed as Low
Density Residential. The Riverfront Mixed -Use (RMU) area also, at first glance, appears to
represent a divergence between anticipated and actual development, as relatively few parcels
are mixed -use on the Existing Land Use Map. However, the RMU area allows, but does not
mandate, mixed -use on a parcel -by- parcel basis. Rather, the designation seeks mixed -use on a
district basis. The Future Land Use Element (Policy 1- 1.4.4) anticipates that the mix of uses in
the RMU area, by 2025, will be 25 percent residential, 20 percent recreational /institutional and
55 percent commercial. According to Property Appraiser and City data, on an acreage basis
residential uses currently make up about 28 percent, recreational /institutional about 3 percent
and commercial about 44 percent.
VacantUndeveloped Land
There are 1,583.5 acres of vacant/undeveloped within the City of Sebastian limits. The Vacant
Land Use Map shows the location of these lands, along with their Future Land Use
designations. The Future Land Use Element updated in 2009 uses a "density factor" to
determine potential residential units, which assumes that only a portion of each potential
residential site will be used for residential due to conservation overaly and locational /density
restrictions. This method is continued in Table 6 below, which estimates that development
potential of the City's vacant /undeveloped land.
Table 9: Development Potential of Vacant Land
Source: City of Sebastian; Outlier Planning, April 2010
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
12
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However, it is likely that the actual, realistic development potential for residential units in
Sebastian is substantially less than that technically allowed by the Comprehensive Plan. It is
known anecdotally that many single family homeowners in Sebastian also own vacant Tots next
to their home for purposes of an effectively larger yard or to prevent development next to their
residence in any case, to effectively prevent development. A GIS analysis of Property
Appraiser and future land use data in the City's single family neighborhoods suggests there are
likely between 1,282 and 1,673 such single family lots that, while technically developable, are
unlikely to be available for development over the planning horizon. Conservatively, using the
lower number, total residential development potential is estimated at 3,757 additional units.
Projected Land Use Needs
In order to plan for future land uses, it is important to project the quantity of each land use type
that will be needed. The projections below are largely taken from the analysis in the City's
Future Land Use Element.
Residential: The City's Housing Element projects a need for a total of 17,274
units by 2025 and states that this would amount to 7,596 more units than in
2005 (6,981 single family and 615 multifamily). In order to derive a more up -to-
date figure, BEBR's 2009 population estimate for Sebastian (22,722) and the
latest ACS estimate of household size in Sebastian (2.17) were used to estimate
that Sebastian currently has about 10,471 units. Thus, there would need to be
an additional 6,803 units by 2025 to reach the total projected need of 17,274
units. Using the same proportion of single family to multifamily units as the
Housing Element projections, 6,252 of those units would be single family and 551
would be multifamily.
Commercial: Based the existing proportion of commercial land uses to
population in Sebastian, the Future Land Use Element projects a need for a total
of 371 acres of commercial use in 2025. Existing commercial development plus
available commercial land on the Future Land Use Map (including Riverfront
Mixed Use) yields about 312 acres.
Industrial: The Future Land Use Element projects a need for a total of 345 acres
of industrial uses in 2025, again based on existing proportions of land use to
population. Existing industrial land and vacant industrial land on the Future Land
Use Map add to only 138.4 acres. However, according to the Future Land Use
Element method of determining existing land use, there are currently 225 acres
of industrial use, which when added to the 51.81 acres of vacant industrial on the
FLUM, totals about 277 acres, suggesting a need for an additional 68 acres of
industrial.
A simple comparison between projected needs and available capacity is helpful, but does tell
the entire story. Additionally, using a projection method that depends upon maintaining the
existing proportion of a particular land use to population has its limitations, in the sense that it
assumes that the existing proportion is desirable or likely in the future.
In terms of residential demand, Sebastian will clearly need to designate some additional
residential land uses by 2025, as the gap between estimated remaining capacity of 3,757 units
and projected needs of 6,803 units is substantial. Some of this difference may be bridged
through redevelopment in the Riverfront area densification or conversion of existing uses to
mixed -use including residential. Using the Plan's 25 percent target for residential uses in the
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
15
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HOME 'I PFIIC A, tiLA1D
RMU and the maximum of eight units per acre, the RMU area could be expected to
accommodate about 200 units beyond both those already existing units and potential units from
vacant land in the RMU area. Assuming that the Very Low Density and Low Density land use
categories can be used as a proxy for single family capacity and taking into account the
estimated 1,282 units by which capacity has been reduced by homeowners holding adjacent
lots, as discussed above total single family capacity on vacant land is estimated at 3,154
units. Similarly, assuming that units developed in the RMU area and in the Medium Density
category will be multifamily, capacity for these units is estimated at 486, while remaining mobile
home capacity is 117 units. Adding the estimated RMU residential redevelopment of 200 units
(also assumed to be multifamily, bringing that total to 686) over the planning horizon yields a
total capacity (including redevelopment) of 3,957 units, which leaves a remaining deficit of 2,845
units. The projections above would suggest that this additional capacity should be allocated as
single family units. However, other policy goals including the promotion of alternative
transportation modes (see Major Issue #1), energy- efficient land use patterns and various
economic benefits to be gained through a variety of housing choices and coordination of
housing with employment locations suggests that the City should strive for a significant share
of additional units to be designated as multifamily, particularly in locations with easy access to
existing and planned alternative transportation modes and in development forms, including
mixed -use, that will appeal to young professionals (see Major Issue #2).
The projections above would suggest a need to add approximately 59 acres of commercial land
and an additional 68 acres of industrial land. However, as discussed in Major Issue #2, the City
may benefit from significantly more employment that could make work trips shorter, as well as
bring fiscal benefits. Further, while much of the City's industrial capacity is at the Airport, that
location is not well- suited for all industries the City may wish to attract, and the lack of a quality
industrial park or similar facility has been cited as a barrier to increased competitiveness in
attracting targeted industries. Thus, the City may need to allocate additional industrial lands,
including potentially in areas that are annexed in the future, as part of economic development
efforts. Similarly, additional commercial capacity may be necessary for the purpose of creating
more efficient land use patterns, with commercial uses nearby, and physically and functionally
integrated with, residential uses in order to create areas suited for pedestrian and transit activity
and dynamic activity, as well as to support such existing areas, such as the Downtown
Riverfront.
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
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WV%JI P[LICAAI L4 b
2007/2009
Schumann
Dr.
CR -510
Barber St
2
9,952
573
480
760
Barber St
US -1
Schumann Dr
2
5,361
269
250
530
Barber St
Schumann Dr
Englar Dr
2
9,837
53
480
670
Barber St
Englar Dr
CR 512
2
8.819
490
480
760
2015
Roseland
Rd
CR 512
North City Limit
2
14,323
686
480
760
Barber
US -I
Schumann Dr
2
10,833
527
530
660
2025
CR 512 (WB)
1,854
1.810
1,860
CR 512 (EB)
4
38.190
(Roseland CR 512 North City Limit
2
480
CR 510 70" Ave 66" Ave
4
24,747 1, 179
1.620
1 ,720
CR 510 66 Ave 58 Ave
4
23.876 1.137
1.120
1.620
Barber St US-1 Schumann Dr
2
12,941 608
530
660
IV. Levels of Service Financial Feasibility Analysis
Transportation
The Sebastian Comprehensive Plan has established a traffic level of service (LOS) standard of
"D" for all arterial and collector roadways. The Transportation Element, updated in 2009, states
that no arterial or collector roadways exceeded the established LOS D service volumes in 2007,
and goes to project that all arterials and collectors in the City will operate within acceptable
levels of traffic volume in both 2015 and 2025, accounting for planned roadway improvements.
Planned improvements between now and 2015 including the expansion of CR -512 between CR-
510 and Roseland Road from four lanes to six, as well as the expansion of Schumann Drive
between the south City limits and Barber Street from two lanes to four. Between 2015 and
2025, plans call for the improvement of the following roadway segments from two lanes
undivided to two lanes divided: Roseland Road between CR -512 and the north City limits;
Barber Street between US -1 and Schumann Drive; Barber Street between Schumann Drive and
Englar Drive; and, Barber Street between Englar Drive and CR -512.
Although no roadways are projected to exceed LOS D service volumes, several segments
currently operate and /or are projected to operate at LOS D in 2015 or 2025, raising the
possibility of LOS service failures on these roadways if traffic levels grow faster than expected.
These segments, with existing /projected volumes are presented in the table below, as well as
shown on Maps 6, 7 and 8. Additionally, projections indicate three roadway segments in 2025
will be very close to the maximum LOS D service volumes. These are highlighted in red in the
table below.
Table 10: Existing /Projected LOS D Roadways
Name
Frorn
To Lanes AADT/
PSWADT
Peak
Hour
Dir.
Volume
Max.
LOS C
Service
Volume
Max.
LOS D
Service
Volume
Source: City of Sebastian Transportation Element, April 2009: Indian River MPO
AADT average annual daily traffic; PSWADT peak season weekday average daily traffic
AADT /PSWADT figures are from 2009; peak hour directional volumes are from 2007
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
18
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nn►[ r[oKa% nuvn
The ability to accommodate additional traffic and alleviate potential roadway LOS failures is
limited in some cases, by the physical space required for additional lanes, fiscal constraints and
other policy goals. For example, as discussed in Major Issue #2, US -1 through the Riverfront
area should not be expanded beyond its existing four through lanes, due to the damage that
such an expansion would cause to community character.
Roadway expansion can also in some cases be a detriment to multi -modal mobility. Large
roads with fast moving traffic can make pedestrian and bicycle travel dangerous, inconvenient
and unpleasant, and requires resources that may be better spent on modes such as transit. It
was in recognition of factors such as these as well as the fact that the traffic concurrency
system in Florida has often had the unintended effect of discouraging infill and redevelopment,
thereby precipitating urban sprawl that the Florida Legislature passed Senate Bill (SB) 360 in
2009. Among other provisions, SB 360 made jurisdictions defined as "dense urban land areas"
(DULAs, including the City of Sebastian, Transportation Concurrency Exception Areas (TCEAs).
At this point, there is controversy as to whether the law simply removed the state mandate for
concurrency in DULAs (meaning that DULA jurisdictions could choose to terminate their
existing concurrency systems, or could choose to keep them) or whether the law rendered
existing concurrency systems in these jurisdictions null and void. DCA has taken the position
that it is the former, and for the time being, and for the time being the City's traffic concurrency
standards, administered through Indian River County, continue to be enforced.
Until this issue is settled likely through either the courts or clarifying legislation there is
uncertainty that makes it difficult for Sebastian and other DULA jurisdictions to know how to
proceed. This issue and potential policy options are discussed in greater detail as part of Major
Issue #1. However, what is clear is that Sebastian now has greater policy options with respect
to transportation, particularly as it relates to alternative travel modes. This may include
supplementing existing traffic LOS standards, or perhaps replacing those standards with a
mobility fee system or other alternative(s), again as further discussed in Major Issue #1.
Sanitary Sewer
All central sanitary sewer services in Sebastian are provided by Indian River County. This
system is only available along arterial roadways and in newer subdivisions. The remainder of
the City is served by private septic tanks. The City has adopted an LOS standard for sanitary
sewer of 250 gallons per day per equivalent residential unit, consistent with the County's
adopted LOS standard. According to the Indian River County Comprehensive Plan, planned
capital improvements will continue to ensure that this LOS standard is maintained through the
County's 2030 planning timeframe. Therefore, there are no existing or projected deficiencies in
sanitary sewer service in the City of Sebastian, with the exception of any private septic tanks
which may fail.
Solid Waste
Solid waste collection and disposal service is provided by Waste Management through a
franchise agreement with the City. The City's adopted LOS for solid waste is 6.97 pounds per
capita per day. Indian River County is responsible for providing sufficient solid waste capacity
through its planning horizon. According to the County's 2007 Solid Waste Master Plan, demand
for solid waste capacity will be 9.6 million cubic yards, while with current landfill segments and
scheduled expansions, actual capacity in 2030 will be 13.5 million cubic yards. There are thus
no existing or projected solid waste collection and disposal deficiencies.
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
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S BASTIAN
HOME 01 1'ttliAR 114 ;NO
Facility LOS Standard 2009 2015 2020 2025 Existing
Demand Demand Demand Demand
Neighborhood Parks
(acres)
2 acres 1,000 pop.
45.44
56.14
63.47
70.23
52.15
Community Parks (acres)
2 acres 1,000 pop.
45.44
56.14
63.47
70.23
261.5
Tennis Courts
1 court 10,000 pop.
2
2
3
3
10
Basketball Courts
1 court 10,000 pop.
2
2
3
3
2
Baseball /Softball
Diamonds
1 field 5,000 pop.
4
5
6
7
5
Football /Soccer Fields
1 field 25,000 pop.
1 area 7,500 pop.
1
3
1
3
1
4
1
4
3
7
Equipped Play Areas
Boat Ramps
1 ramp 12,500 pop.
1
2
2
2
3
Shuffleboard Courts
1 court 5,000 pop.
4
5
6
7
4
Volleyball Courts
1 court 12,000 pop.
1
2
2
2
Golf Course (holes)
18 50,000 pop.
18
18
18
18
18
Potable Water
All centralized potable water services in Sebastian are provided by Indian River County. The
City has adopted an LOS standard for sanitary sewer of 250 gallons per day per equivalent
residential unit, consistent with the County's adopted LOS standard. There are no existing
deficiencies in the City. According to the County Comprehensive Plan, sufficient treatment
capacity exists throughout its entire potable water system to accommodate expected demand
through 2030. However, there is a need to address future water supply, including identification
and proper development of alternative sources. In 2007, Indian River County prepared an
Alternative Water Supply Master Plan. According to that plan, surface water may serve as an
alternative to, or a supplement to, the Floridan Aquifer as the County's future potable water
supply source. However, this will also require the development of a surface water storage
system.
Parks, Recreation and Open Space
The City's adopted LOS for parks, recreation and open space is two acres of neighborhood
parks per 1,000 population, two acres of community parks per 1,000 population, plus standards
for a number of different recreational facilities. All of this information, as well as existing
fiacilities, are presented in the table below. The City currently meets all of these LOS standards,
with the exception that the existing number of volleyball courts is unavailable at this time.
Table 11: Current and Projected Park Facility Needs
Source: City of Sebastian Recreation and Open Space Element
Detailed information and analysis regarding parks, open space and recreation is provided in
Major Issue #4. Based upon that analysis, it is recommended that the distinction between
community and neighborhood parks be ended for LOS purposes, and that the facility- specific
LOS standards also be removed. This leaves a simple LOS standard of four acres of parks per
1,000 population. Based upon that recommendation, the City will meet this LOS standard for its
2025 projected population with existing facilities.
Drainage
The City's LOS standard for drainage facilities is as follows:
Water Quantity Standards:
Off -Site Standard: Post development runoff shall not exceed the pre development runoff
rate for a 25 -year, 24 -hour design storm.
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
20
SEBASTIAN
HOW C I I'ELti 4\ L L -1 \D
On -Site Standard: Post development runoff shall not exceed the pre development runoff
rate for a 10 -year, 24 -hour design storm.
Water Quality Standards:
Water quality standards of Chapter 17 -25, F.A.C., shall be applied as the quantitative
standard. Chapter 17 -25, F.A.C., requires Outstanding Florida Waters (i.e., Indian River
Lagoon) to reduce pollution loads by an additional fifty (50 percent prior to discharge.
Those standards are enforced through the development review and permitting process.
Most of the City's residential areas rely on a swale system for drainage. There are some
existing drainage problems and issues in the City resulting from older subdivisions, and
generally relate to lack of culverts and problems with existing control structures, open channels
and wet detention ponds. The City's 2004 Master Stormwater Management Plan ranked
drainage projects using the following criteria: flood severity; public benefit; priority; permitting
requirements; and water quality enhancement potential.
In 2001, the City established the Sebastian Stormwater Utility, which levies an annual fee on a
per unit/property basis, to address long -term solutions to drainage problems. An ongoing
program for the installation of quarter -round pipe in much of the City's drainage swales has
proven successful in remedying drainage problems, and the City has committed to continuing
this project.
Schools
The LOS standard for schools throughout Indian River County is "100% of the Florida Inventory
of School Houses (FISH) capacity for each year of the five year planning period and throughout
the long term planning period for each School Service Area." Both Sebastian Elementary and
Sebastian High School do not currently meet this standard. Programmed improvements are
identified in the District's budget to address the deficiency in the middle school. The high school
has capacity projects scheduled in the School District's Five -Year Capital Facilities Plan.
Additionally, Sebastian Elementary School, Sebastian River Middle School and Sebastian River
High School are projected to be over capacity in 2013 if there are no mitigating capital
improvements. As per the requirements of school concurrency, the utilization of any school
above 100% will be redistributed by the School District. Current and future projected middle
school overcrowding is anticipated to be resolved with the opening of an additional middle
school. Additional funds for capital improvements may come in the form of proportionate share
mitigation where a development would otherwise cause a school to be over capacity.
Financial Feasibility
According to s. 163.3164, Florida Statutes (F.S.) "`Financial feasibility' means that sufficient
revenues are currently available or will be available from committed funding sources for the first
3 years, or will be available from committed or planned funding sources for years 4 and 5, of a
5 -year capital improvement schedule for financing capital improvements, such as ad valorem
taxes, bonds, state and federal funds, tax revenues, impact fees, and developer contributions,
which are adequate to fund the projected costs of the capital improvements identified in the
comprehensive plan necessary to ensure that adopted level -of- service standards are achieved
and maintained within the period covered by the 5 -year schedule of capital improvements." The
City is current on its annual Capital Improvements Element (CIE) updates. Additionally,
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
21
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Oar -ref
II..it 411110 a\Lt NM!
drainage is the only facility /service subject to concurrency that has existing or projected
deficiencies and for which the City has financial responsibility for capital improvements. The
City is addressing existing drainage deficiencies through capital improvements, primarily the
installation of quarter -round pipe in drainage swales, in a multi -year process that is included in
the Five -Year Schedule of Capital Improvements (SCI) in the CIE. The financial feasibility of the
SCI is demonstrated in the City's latest CIE annual update. Thus, the City's Comprehensive
Flan is financially feasible.
City of Sebastian 2010 EAR— DRAFT 6 -15 -2010
22
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H, \tt Of PELICAN ISLAND
V. Major Issues Analysis
As part of the EAR process, the City of Sebastian has identified five Major Issues for detailed
analysis. Through interviews with City officials and staff, feedback from Local Planning Agency
(LPA) members and members of the public, input from other agencies and units of government,
two advertised public workshops and approval at a City Council public hearing, these major
issues were selected as the basis for reviewing the Comprehensive Plan and making changes
to better meet the City's anticipated future challenges. Each Major Issue analysis includes a
description of the issue, identification of Plan provisions relevant to the issue, analysis and
recommendations.
Major Issues are as follows:
Major Issue 1: Connectivity of Arterial /Collector Roadways and Alternative
Transportation Modes
Major Issue #2: Economic Development and Job Creation
Major Issue #3: Balancing Sustainable Growth with Protection of Community
Character
Major Issue #4: Future Development and Funding of the Park and Recreation
System
Major Issue #5: Annexation and Service Delivery
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
23
5 TAN
HOW Of Pttli An !SLAV,
Peak Max. Max.
Name From To Lanes AADT/ Hour LOS C LOS D
PSWADT Dir. Service Service
Volume Volume Volume
2007/2009
Schumann
Dr.
CR -510
Barber St
2
9,952
573
480
760
Barber St
US -1
Schumann Dr
2
5,361
269
250
530
Barber St
Schumann Dr
Englar Dr
2
9,837
532
480
670
Barber St
Englar Dr
CR 512
2
8,819
490
480
760
2015
Roseland
Rd
CR 512
North City Limit
2
14,323
686
480
760
Barber
US -I
Schumann Dr
2
10,833
527
530
660
2025
U ain SI
CR 512 (i(lB)
d
38190
1 ;851
IVY
1,860
US- CR 512 (WB)
CR 512 (EB)
4
38,190
1.854
1,810
1,860
Roseland CR 512
idol
North City Limit
2
16,599
795
480
760
CR 510 70' Ave
66 Ave
58 Ave
4
4
24,747
23,876
1.179
1,137
1,620
1,120
1,720
1,620
CR 510 66 Ave
Barber St US -1
Schumann Dr
2
12,941
608
530
660
Major Issue #1: Connectivity of Arterial /Collector Roadways and Alternative
Transportation Modes: Sebastian neighborhoods enjoy good interconnectivity, however, some
local collector roadways are becoming congested and are projected to be overcapacity in future
years. The City works with the MPO staff to explore methods to increase capacity through
widening roads or developing new roadways options to facilitate east/west and north /south
travel. The City of Sebastian, not unlike other communities, is dependent upon vehicles as the
primary mode and while there are several transit routes serving the City, other alternatives to
automobile travel, like rail, are not yet available. These topics will be examined in the context of
improving mobility in Sebastian, as well as the relationship of these issues to community
character and their relationship to changes in state mandated transportation requirements for
comprehensive plans under Senate Bill 360 and House Bill 697.
As noted neighborhood roadway connectivity in Sebastian is relatively good. However, better
east -west and north -south connectivity essentially, additional route options particularly in the
southeast area of the City, would relieve existing and projected congestion on some arterial and
collector streets. While no roadway is currently, or projected in 2015 or 2025, to exceed the
established level of service (LOS) 'D' service volumes, a number of segments are operating or
expected to operate at LOS D, a less than ideal situation. Beyond this. in 2025 projected
volumes on US -1 between Main Street and CR -512, and Roseland Road between CR -512 and
the northern City limits, are projected to be very close to LOS D capacity, and could easily be
over capacity in the future. It is interesting to note in this context that 2009 traffic counts have
shown significant decreases of trips on Barber Street and significant increases on CR -512. In
general, trips have been decreasing in Indian River County as a whole. Also important to
consider is that the Comprehensive Plan has identified Barber Street, Main Street and US -1 as
locations where there is little to no room to increase capacity.
"fable 12: Existing /Projected I,OS 1) Roadways
Source: City of Sebastian Transportation Element, April 2009; Indian River MPO
AADT average annual daily traffic; PSWADT peak season weekday average daily traffic
AADT /PSWADT figures are from 2009; peak hour directional volumes are from 2007
dutlieit.
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
24
BAS�Tl N
110 \le PfIICA %NAND
At the same time, state planning requirements related to transportation have been substantially
modified by the Legislature through the passage of House Bill (HB) 697 in 2008 and Senate Bill
(SB) 360 in 2009. In summary, each of these bills made the following changes as they relate to
transportation:
HB 697:
The future land use plan must address the discouragement of urban sprawl, energy
efficient land use patterns and greenhouse gas reduction strategies; and,
The transportation element must address strategies to reduce greenhouse gas emissions
from the transportation sector.
SB 360:
Removes state mandated transportation concurrency requirements in areas qualified by
the legislation as "dense urban land areas" (the City of Sebastian is a "dense urban land
area according to the statute's definition);
By July 1, 2011, local governments qualifying as "dense urban land areas" must adopt into
the local comprehensive plan "land use and transportation strategies to support and fund
mobility including alternative modes of transportation."
There are different interpretations regarding the transportation concurrency exception areas
created by SB 360. DCA has interpreted the legislation to mean that the state no longer
requires transportation concurrency in "dense urban land areas," but that local governments can
retain those systems if they so desire. Others assert that SB 360 abolishes existing local
government concurrency systems in dense urban land areas. This issue may ultimately be
resolved by the courts. It is also possible that the Legislature will pass a "fix" to SB 360 that
would immediately abolish transportation concurrency in "dense urban land areas." This
uncertainty further complicates efforts to respond to the changes. In any case, these changes
raise the question of how much roadway LOS standards should matter in efforts to promote
mobility. Should they no longer be considered, or should they be part of a number of measures
that also take into account alternatives modes of transportation? If so, what are those
measures?
HB 697 and SB 360 taken together clearly move the state in the direction of a transportation
system that is more energy- efficient and multi modal, and less dependent upon the automobile.
The most current draft of changes to Rule 9J -5, Florida Administrative Code (F.A.C.) to
implement HB 697 point to a number of familiar planning strategies, such as compact, mixed
use development, jobs- housing balance, minimum /higher density /intensity standards,
infill /redevelopment incentives, transit oriented development and urban design standards.
Following are relevant provisions of the City of Sebastian's existing Comprehensive Plan
relating to this issue. Please note that Major Issue #4 "Future Development and Funding of the
Park and Recreation System" includes analysis of greenways, wherein there is a more detailed
discussion of bicycle and pedestrian systems. Those parts of Major Issue #4 relating to those
items should be considered incorporated into this analysis. Similarly, plan provisions relating
most closely to those issues are identified as part of Major Issue #4.
Relevant Plan provisions:
Transportation Element:
Objective 1.1: Level of Service. The City shall adopt and adhere to level of service
standards for arterial and collector streets.
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
28
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Z
110t11. 1{ PLLICA6 KLd C
Policy 1.1.5:
Policy 1.1.6: The City shall coordinate with FDOT to pursue a US 1 corridor study
to identify and evaluate improvements and alternative corridors.
Policy 1.1.7:
The City shall coordinate with the Indian River County Metropolitan
Planning Organization (MPO) corridor studies to identify new corridors
to increase north -south and east -west connectivity. The following are
possible corridors to study:
Laconia Street Extension (north- south): from Concha Drive to
County Road 510.
The City shall continue to partner with local developers, Indian River
County and other government agencies to construct new corridors to
relieve arterial and collector road congestion.
Objective 1.2: Roadway Network. The City shall undertake measures designed to
assist in the free flow of traffic along major roads and strive to
maintain and improve the LOS on those roadways if at any time they
operate at a lower LOS than the adopted standard.
Policy 1.2.1:
Policy 1.2.4:
Policy 1.3.1:
The City shall coordinate with Indian River County and FDOT on a
traffic flow management system (signal synchronization) for all future
signalization along CR 512.
The City shall continue to monitor any future collector and arterial
roadway access any future deficiencies, and shall devise methods
and budget monies to alleviate those deficiencies.
Objective 1.3: Future Land Use, Housing and Population. The City shall
coordinate the transportation system with the adopted Future Land
Use Map series and shall ensure that existing and proposed
population densities, housing and employment patterns, and land
uses are consistent with the transportation modes and services
proposed to serve these areas.
The City shall review roadway improvements, new construction and
roadway extensions proposed by other agencies for consistency with
the Future Land Use Map series of the Comprehensive Plan.
Policy 1.3.4: The City shall require that new development be compatible with
Goals, Objectives and Policies of the Transportation Element and that
new development shall further the achievement of aforementioned
Goals, Objectives and Policies, of the Transportation Element.
Requirements for the compatibility of new development may include
but are not limited to:
Locating parking to the side or behind the development to provide
pedestrian accessibility of building entrances and walkways to the
City of Sebastian 2010 EAR DRAFT 6 15 2010
29
SETLAN
110 MI ac MAC an 1St a
street, rather than separating the building from the street by
parking.
Providing clearly delineated pedestrian routes through parking lots
to safely accommodate pedestrian and bicycle circulation and to
minimize potential bicycle /pedestrian and automobile interaction.
Objective 1.4: Intergovernmental Coordination. The City transportation system
shall be coordinated with the work plans and programs of Indian River
County, FDOT, the Florida Transportation Plan, and the Indian River
County Metropolitan Planning Organization.
Policy 1.4.3: The City shall use County and State numerical indicators for
measuring the achievement of City mobility goals. Numerical
Indicators shall include:
Modal Splits;
Annual Transit Trips Per Capita; and
Automobile Occupancy Rates.
Objective 1.5: Connectivity. The City shall provide for the protection of existing and
future right -of -way (ROW).
Policy 1.5.1: The City shall develop a priority listing of needed ROW for the
purpose of orderly and economical land acquisition.
Policy 1.5.2: The City shall compile and maintain a listing of existing and projected
needs for ROW within the urban area.
Policy 1.5.4: The City shall establish standards for donation /dedication of ROW by
developers.
Policy 1.5.5: Corridors with inadequate ROW shall be inventoried and the City shall
coordinate with Indian River County for reservation of adequate ROW.
Policy 1.5.6: Wherever possible, the City shall require that future development
reserve ROW in a gridded street network that ensures connectivity.
Policy 1.5.8: The City shall require that roadways be dedicated to the public to
connect with and shorten existing public roadways.
Policy 1.5.9: The City shall require that future subdivisions with 25 units or more, at
a minimum, have at least two (2) points of access open to motor
vehicle traffic.
Policy 1.5.10: New subdivisions shall be required to "stub -out" to adjoining
undeveloped lands to promote road connectivity, and to connect to
existing roadways that are "stubbed -out" at their boundaries.
City of Sebastian 2010 EAR DRAFT 6 -15 -2010 $EB T!AN
30
II i1 PC tli A'. 1St AN D
Policy 1.6.11: The City shall develop standards, for new non residential
development, to establish a maximum number of parking spaces
allowed in excess of the parking space requirements of the City's land
development regulations, in order to encourage walking, bicycling,
ridesharing, and shared parking, and to minimize the creation of
excess impervious surface area.
Policy 1.6.12:
Policy 1.6.14:
Adequate pedestrian circulation and safety shall be considered as a
required component of roadway system management, with
implementation and required construction.
By 2014, in coordination with the Indian River County MPO, the City
shall evaluate the need for additional public transit routes in
conjunction with the Indian River Transit GoLine bus system and
major trip generators and attractors.
Policy 1.6.15: By 2014, the City shall update the land development regulations to
include site and building design standards for development in
exclusive public transit corridors to assure the accessibility of new
development to public transit.
Intergovernmental Coordination Element:
Policy 8- 1.3.1: Coordinate Regional /Sub- Regional Infrastructure Issues. The
City shall work with various Indian River County Special Committees,
including the North County Water and Wastewater District, the North
County Fire District, the Joint Transportation Committee, and other
similar committees in addressing issues surrounding regional or sub
regional infrastructure systems. Issues which shall be coordinated
include, but shall not be limited to, wastewater and potable water
systems improvements within the North County area; maintenance of
the fire protection and emergency medical service in the North County
area; improvements to several State Roads and County Roads; solid
waste and hazardous waste disposal; and plans for "district" or
"urban" parks in the North County area.
The City's policies related to additional east -west and north -south roadway connections and
reservation of right -of -way are fairly well developed. However, most of these policies were
instituted in April, 2009, and so there has not been sufficient time to evaluate their successes
and failures. Currently, the Transportation Element specifically identifies only one additional
roadway connection, which is an extension of Laconia Street from Concha Drive to CR -510.
While much of this planned road is currently outside the City's jurisdiction, the CR -510 corridor
is an area for potential annexation (see Major Issue #5), and in any case has the potential to
create significant impacts to the City due to its proximity. The Laconia Street extension would
provide alternative routes for those residents of the south and west parts of the City attempting
to use US -1 to travel north or south. However, the primary east -west routes in this area, CR-
510 and Barber Street, are projected to operate at LOS D in 2025, although well below their
maximum LOS volumes. Because the CR -510 corridor outside of the City is still largely
undeveloped, the opportunity still exists to create a gridded, relatively dense street network in
this area and provide additional east -west route options, lessening the traffic burden on CR -510
and Barber. Thus, the City should include in the Transportation Element a policy to pursue at
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
31
SEBASTIAN
IK'. L CH VW KfAND
Mode
2000
2006 -2008
Sebastian
Sebastian
Indian River
County
Florida
Drove alone
81.4%
84.2%
82.4%
79.4%
Carpooled
11.9%
9.2%
9.5%
10.5%
Public Transportation
0.0%
0.0%
0.4%
2.0%
Walked
0.4%
0.3%
1.3%
1.6%
Other means
1.9%
1.4%
2.5%
2.2%
Worked at home
4.3%
4.9%
3.8%
4.2%
least one additional east -west roadway between Barber Street and CR -510, connecting to the
extended Laconia Street. The City should also concentrate pedestrian /bicycle improvements
and advocate for transit improvements in this area in order to provide viable transportation
alternatives and reduce auto trips, as discussed in more detail in Major Issue #4. This is a
particularly important opportunity should the CR -510 corridor become a significant employment
generating area.
The transportation- related provisions of HB 697 and SB 360 (i.e. alternative travel modes,
energy- efficient land use patterns, supporting and funding mobility) are so strongly related that
they are best addressed together. One of the mandates of SB 360 was that DCA and FDOT
jointly develop a Mobility Fee Study one possible policy option to consider as a replacement to
transportation concurrency, either by the choice of local jurisdictions or by future mandate of the
Legislature. According to the recommendations of the Mobility Fee Study, all new development
would pay for its impact on the transportation system, not just if that development directly
causes or worsens a level of service failure; through an interlocal agreement system, a mobility
fee would apply countywide, but would vary by location and development type, charging more
for development with more impact on the transportation system; the fee revenue would be
shared by public entities responsible for effected transportation facilities; and, the fee would be
based on, and help fund, mobility plans developed by local governments that consider multiple
travel modes, not just the automobile.
Sebastian, like most of Florida, is not currently "multi- modal." The table below presents Census
data about commuting to work, clearly showing that driving a single- occupant vehicle is the
dominant mode of transportation in Sebastian, at a higher rate than in Indian River County and
Florida as a whole.
Table 13: Means of Transportation to Work
Sources: Census 2000; 2006 -2008 American Community Survey (ACS)
Below is a brief assessment of existing and potential alternative travel modes in Sebastian:
Local Transit
Currently, GoLine Indian River Transit (IRT) provides limited service to the City of
Sebastian with three (3) routes. Routes 5 starts at Sebastian River Medical Center on
US 1, heads west on Main Street and circulates to the North County Transit Hub at CR-
512 and CR -510. Route 11 runs north -south along US -1. And Route 12 begins at the
North County Transit Hub and runs east along Barber Street, then north on Schumann to
US -1, where it heads south and terminates at the Publix at US -1 and Barber. (See cut-
out of the GoLine Route Map). Beyond this, Routes 9 and 10 also begin and end at the
North County Transit Hub, with the former heading south and east along the 510 corridor
and eventually to the Indian River Mall. The latter connects with Feilsmere to the west.
All of these routes operates Monday through Friday 8:00 am to 6:00 pm.
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
32
SEBASTIAN
.40
It is apparent through examination of the transit route map that a logical connection
between routes 9 and 12 and thus perhaps a much going to or returning from trips
south toward the Indian River Mall would be via Schumann Drive /66 Avenue, a factor
that should be kept in mind when planning for mobility.
The 2030 Indian River County Long Range Transportation Plan has identified one
additional bus route for the Sebastian area, connecting Sebastian with Fellsmere along
CR 512. Although the Census statistics on transit use in Sebastian are not encouraging,
transit ridership along the routes through the City have been rising steadily, a trend that
is expected to continue in both the short- and long -term.
In addition to participating with the IRT GoLine transit system, the City of Sebastian
utilizes the County's transportation disadvantage program known as the Community
Coach. The Community Coach vehicle is a smaller size bus than the full length
traditional Route buses. The Community Coach system is operated by the Senior
Resource Association and is headquartered in Vero Beach. This program was created
to help provide a transportation option to individuals because of an ailment, age, or
disability, are incapable of using private transportation. This system is available for
transport to medical appointments, employment centers, education facilities and
essential life supporting daily regimes.
Bicycle /Pedestrian
As mentioned above, this issue receives a more complete treatment as part of Major
Issue #4. The portion of that analysis that deals with greenways should be considered
to be incorporated into this analysis.
Current bicycle facilities in Sebastian include an off -road bicycle /pedestrian path along
the north side of CR 512 and on- street facilities on portions of US1. This three -mile path
was a railroad right -of -way which the County converted into a recreation path.
The City has a relatively comprehensive sidewalk system throughout the City. However,
some portions of the City are disjointed, primarily Main Street on the west side of the
City. Based on the current land development regulations, developments are required to
construct sidewalks along collector and arterial roads.
The North County Greenways Plan developed by the Indian River County Metropolitan
Planning Organization (MPO) identifies a number of bicycle and pedestrian routes
including both existing and proposed routes (see Map on next page from the Greenways
Plan depicting greenways for the Sebastian area). The Greenways Plan identifies the
major routes and improvements needed to complete that "backbone" system.
Rail
An active railroad system (the Florida East Coast or FEC railroad) runs parallel to US 1
on its west side. However, it is used predominately for freight transport of goods to and
from south Florida. There are no passenger stations along this stretch of rail line within
the City or within a close proximity. Nonetheless, there has been a consistent push by
communities along the east coast of Florida to revive passenger service along the FEC
railroad, in particular a high -speed line from Jacksonville to Miami. Preliminary plans
developed do not include a station in Sebastian, but rather in Vero Beach. If passenger
service does at some point return to this corridor, it would be most beneficial to the City if
there is a station in Downtown Sebastian. However, if that cannot be accomplished, the
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
34
SSEBASTtAN
11 \tl 04 1'llli 411St. Am
City should consider a direct shuttle from the Vero Beach station to Sebastian to make service
for Sebastian residents and visitors as convenient as possible. The mandates, as well as the
flexibility, afforded by both HB 697 and SB 360, are opportunities for Sebastian on a number of
fronts. First, as reflected in the language in the Comprehensive Plan and the community's
identification of major issues for this EAR, Sebastian residents are generally supportive of
bicycle and pedestrian amenities. Second, participants in the EAR process have voiced their
support for "green" initiatives, and real support for alternative transport modes will help the City
reduce greenhouse gas emissions and conserve energy. A strong pedestrian bicycle system,
along with the boost to the City's "green" credentials that it brings, may also help to attract
"green" industries that the City has targeted in economic development efforts.
It is clear from the language of SB 360 that alternative travel modes must be funded, as well as
roads. Funding should be based on a plan for multi -modal transportation infrastructure. The
mobility fee concept outlined in the DCA /FDOT Report seems to serve as a good basis for a
funding mechanism, which would be based on a mobility plan considering all travel modes to
determine what infrastructure or other allocations are needed. However, the Report seems to
suggest that mobility fees specifically would need to be authorized (if not required) by the
Legislature. The Report also recommends that mobility fees be applied at least countywide,
suggesting that the City could not implement this precise concept on its own. At the same time,
however, the language of SB 360 itself says that "The designation of a transportation
concurrency exception area [pursuant to the bill] does not limit a local government's home rule
power to adopt ordinances or impose fees."
The fact that Sebastian meets the definition of a "dense urban land area while Indian River
County does not, also creates practical difficulties for implementation of a mobility fee concept
or other alternative to transportation concurrency and related impact fees. The City currently
utilizes the County's transportation impact fee system. Implementing a new mobility fee system
in the City would not only require the City to develop and administer a new (and likely
expensive) system on its own, but would also likely result in challenges of coordination with the
County and would be less than ideal from a policy perspective because as noted in the
Mobility Fee Report the mobility fee concept should be applied on at least a countywide basis.
All of this presents a quandary for the City.
The City should consider amendments its Comprehensive Plan to institute a fee on all new
development that would fund multi -modal improvements, either as a replacement to, or in
conjunction with, existing impact fees. Similar to the concepts in the DCA /FDOT Report, the
City should consider the following concepts with respect to a "local mobility fee
charging all new development, as opposed to only that which causes or worsens an LOS
failure;
varying the fee based on geography to account for different transportation impacts; and,
base the fee on a mobility plan that considers alternative travel modes.
This approach may involve adopting pedestrian, bicycle, transit and other such standards in the
Plan, similar to those currently adopted for roadways. If the City elects to move forward with
this concept, it should also try to implement these it in coordination with Indian River County. By
considering the implementation of mobility fees, the City will not only take steps to meet the HB
697 and SB 360 mandates, but also move forward with its own mobility objectives.
Mobility planning should include consideration and evaluation of the following concepts:
Identify existing and future "nodes" both within the City's current boundaries and in
potential annexation areas of appropriate development and pedestrian amenities,
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
36
SE�T�N
a
4IW -NO
HOW 01 1'El r, Mt. KLa \Ct
chosen based on factors such as existing and future pedestrian /bicycle infrastructure
and transit stops.
Prioritizing bicycle system improvements that provide direct and convenient connections
between the "nodes."
Minimum density /intensity standards within identified "nodes."
Allowing for the payment of an in -lieu fee instead of constructing required off street
parking, with the fee being used to construct public parking within the "node," preferably
as on- street parking to enhance urban design.
Base any future increases in residential density on the availability of transit, bicycle and
pedestrian facilities.
Encourage bicycle parking for commercial development along significant existing /future
bicycle routes by developing incentives.
Credits to the "local mobility fee," or other incentives, to encourage such things as:
transit, bicycle and pedestrian improvements; employee bike storage and shower
facilities for larger employers; preferred parking for compact /fuel- efficient vehicles.
Finally, following are a number of recommendations based upon the above analysis, as well as
ideas and discussions with community members. Again, much of the discussion and analysis in
Major Issue #4 regarding greenways also applies to the land use /transportation issues
discussed here.
advocate for a transit connection between GoLine Routes 9 and 12 along Schumann
Drive /66 Avenue;
prioritize pedestrian bicycle improvements along Schumann Drive /66 Avenue between
GoLine Routes 9 and 12;
pursue the establishment of a grid street system along the CR 510 corridor south of the
City's current boundaries, including at least one east -west collector roadway between
CR -510 and Barber Street;
prioritize multi -modal transportation infrastructure as development occurs along the CR-
510 corridor;
the City should specifically review all road improvement plans for multi -modal
opportunities, particularly with regard to routes identified on the North County
Greenways Plan;
coordinate with GoLine Transit to establish and operate a trolley system through the
Downtown Sebastian section of US -1;
make provisions to encourage the use of alternative and fuel- efficient vehicles.
Examples include allowing golf carts on certain streets (e.g. those with bicycle lanes)
and providing for motor scooter parking, particularly Downtown.
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
37
SEAT N
1 ■fr
NOAtt 04 PELICAN t«a\C
Major Issue #2: Economic Development and Job Creation: Economic development and job
creation are perennial issues, but even more in the current severe economic downturn. This
analysis will build on the City's extensive previous work on economic development, and identify
how the plan can best reflect and implement the City's economic policies. Particular topics
identified for examination include development of the tourism industry, green industries, energy
efficiency efforts and opportunities, the business climate in Sebastian, whether the city has
adequate housing for different segments of the community and future industrial growth at the
airport. Maintaining a jobs /housing balance, ensuring affordable housing and housing choices
are key components of this issue.
Like the vast majority of localities in the United States, and very many more around the world,
Sebastian has suffered during the severe economic downturn of the past few years (the
recession in this country officially began in December 2007). This downturn was precipitated in
large part by a collapse in the residential real estate market and closely related crisis in the
financial system. This downturn has hit Florida and places like Sebastian especially hard, as
our economy was relatively dependent on the residential real estate market and closely related
industries such as construction. In Sebastian, again like many localities, the results have been
rising unemployment, financial distress for households and falling tax revenue for the City and
other units of government. While it appears that an economic recovery is underway nationally, it
is expected to be relatively slow, and it is unclear locally what will take the place of lost jobs,
including those in the construction industry, which is a dominant sector in Sebastian.
As part of the EAR, a new proposed economic development element is being developed. This
will be included as an appendix in the final version of the EAR, and will contain a detailed and
broad -based analysis of Sebastian's economic position. This major issue analysis will become
part of the development of that element, but is focused specifically on the topics identified during
the workshop process to craft the major issues. Those topics include:
the tourism industry;
green industries;
energy efficiency;
the businesses climate;
industrial growth at the Sebastian Municipal Airport;
housing (in relation to economic development)
The following existing policies and objectives in the City of Sebastian Comprehensive Plan
relate directly to these topics:
Future Land Use Element:
Policy 1- 2.3.2:
Pursue Selective Industrial Expansion Policy. The City shall
pursue a strategy of selective expansion of its industrial base. The
City shall encourage industries that contribute optimally to the
City's economy and that of the Treasure Coast and Space Coast.
Highest priority shall be directed toward recruiting industries
which:
a. Generate high levels of employment together with higher than
average wage and salaries;
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
38
S BA TtAN
HOW 01 I111C ISLAND
Transportation Element:
Objective 1.3:
Housing Element:
Policy 1.1.8:
b. Promote an industrial mix to counterbalance the impact of
cyclical economic changes;
c. Produce services and /or products which complement the
needs and resources of existing industry within City and the
region.
d. Provide industry and service activities required to support and
attract prime industrial land uses which are compatible with the
City's growth management and resource conservation goals,
objectives and policies;
e. Contribute a net revenue to the City of Sebastian and thus
enhancing the fiscal capacity of the City; and
f. Do not adversely impact the City's natural resources including
groundwater quality; infrastructure; and public facility
improvement needs. The City shall seek to work in partnership
with industrial development interest groups to achieve
competitive amenity packages including:
Requisite transportation system improvements and other
on- or off -site improvements;
Access to public potable water and wastewater services;
Efficient stormwater management systems; and
Maintenance of adopted levels of services for infrastructure
systems.
Future Land Use, Housing and Population. The City shall
coordinate the transportation system with the adopted Future
Land Use Map series and shall ensure that existing and proposed
population densities, housing and employment patterns, and land
uses are consistent with the transportation modes and services
proposed to serve these areas.
The City shall promote mixed -use developments that include
provisions for a wide variety of housing types and prices in close
proximity to support facilities.
Policy 1.2.5: The City shall, through the land development regulations,
encourage the development /redevelopment of housing that will
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
39
SE BASTA N
aotle
1-1 111.1k7NN LLA \D
Policy 1.2.7:
integrate divergent choices of housing, including housing type and
ownership status, across all neighborhoods.
The City shall continue to require that sites for affordable housing
have access to the following facilities, services and /or activity
centers:
Potable water and central wastewater systems;
Employment centers, including shopping centers which
accommodate stores offering household goods and services
needed on a frequent and recurring basis;
A major street (i.e., included in the City's major thoroughfare
plan);
Public parks, recreation areas, and /or open space systems;
and
Adequate surface water management and solid waste
collection and disposal.
The City has already made concerted moves to develop and implement economic development
strategies. In 2003, Patterson Bach Communications Inc. prepared a document "Economic
Development Strategy Marketing Communications Plan The purpose of this study was to
develop a plan to market approximately 160 acres of land located on the City of Sebastian's
Municipal Airport. While this report ostensibly focused on the Airport, much of its analysis
actually is directed toward the whole community, and capitalizing on the City's quality of life.
Several of that study's findings are cited throughout this analysis. Six strategies were identified:
1. Develop a comprehensive strategic marketing communications plan;
2. Position the City of Sebastian as "What Florida is Supposed to be." Live work and raise
your family in the "last," "real" Florida town.
3. For the purpose of economic development, build awareness, comprehension of and
preference for relation and expansion opportunities in the City of Sebastian within the
relocation /expansion consultant industry and the relocation /expansion and site selection
media community.
4. Direct market the relocation /expansion opportunities in the City of Sebastian at the
Sebastian Municipal Airport to aircraft owners that own a business in Miami -Dade,
Broward, and Palm Beach counties through a highly targeted sales campaign.
5. Develop a promotional campaign to provide prospects with the opportunity to experience
the City of Sebastian and the improvements at the Sebastian Municipal Airport and the
features and benefits of locating a business in the City of Sebastian.
6. Partner with the Sebastian River Area Chamber of Commerce to promote the City of
Sebastian and the Sebastian River area capitalizing on the synergy of the combined
strengths of the City and the Chamber.
In 2007, the Sebastian City Council held an Economic Development Workshop. This initiative
was conducted in conjunction with the Sebastian River Area Chamber of Commerce. As a
result of the workshop, the City Council agreed to create an Economic Development Plan, and
the Chamber of Commerce created an Economic Development Task Force to assist in the
preparation of the Plan. The Task Force met from November 2007 through April 2008, and
members were appointed by the Chamber of Commerce. The prepared document "Economic
Development Plan for the City of Sebastian" was presented to the City Council in a workshop on
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
40
5EN
HOME CH PEI tcl
January 7, 2009. This plan put together an overall strategy for implementing economic
development policies in Sebastian.
As suggested above, housing is a critical component for economic development. The labor
force is obviously an indispensible factor of production, and all those members of the labor force
require housing. One dimension of this topic is the affordability of housing. For example, many
companies must consider the affordability of housing when making location decisions, as a
workforce that must make long commutes from more affordable locales is likely to be less stable
and demand higher wages. The housing affordability analysis presented in the City's Housing
Element (updated last year) projects that by 2025, 55 percent of owner occupied households in
Sebastian will pay more than 30 percent of their income for housing costs, the federally
established threshold for affordability. Thirty -five percent of renter households are projected to
pay more than 30 percent of monthly income for housing in 2025. At the same time, the topic of
finding ways to keep Sebastian's children here to raise a family when they grow up was raised
several times during EAR workshop discussions of economic development. The City does not
appear ready to provide enough housing choices /styles for single professionals and young
families just starting out. According to the Future Land Use Element, in 2008 the Future Land
Use Map (FLUM) included potential for an additional 5,002 units, but only 718 of these potential
units would occur in the Medium Density (typically developed as multifamily), Mobile Home or
Riverfront Mixed Use areas, the three of which together represent the land use categories most
likely to yield affordable and workforce housing opportunities. Additionally, an influx of retirees
has traditionally been an economic driver for Sebastian. The number of households with
members over age 65 is expected to approximately double by 2025, suggesting that additional
housing choices appropriate for these households may help Sebastian to continue being an
attractive place to retire.
The location of housing in relation to employment is another important economic development
factor. Large -scale suburbanization of population in the latter half of the 20 century often
placed population centers and large job clusters far apart, raising commute times and the use of
automobiles. In response, many suggested that the answer is a better geographic balance
between jobs and housing. By providing housing opportunities close to employment, it is
hoped, commute times and vehicle use will decrease, and lower income households for whom
transportation costs are often a serious burden will have better access to jobs. It is difficult to
get a precise measure of Sebastian's jobs- housing balance because of the lack of availability of
data on the physical location of jobs at the municipal level. However, the Census does collect
data regarding the location of employment versus the location of residence.
Table 14: Place of Work for Employed Population
Sources: Census 2000; 2006 -2008 ACS
Includes that population living within an incorporated municipality.
As can be seen from the data above, the proportion of workers residing in Sebastian who also
work in Sebastian is only slightly lower than in Indian River County, although both the City and
County are substantially higher than in Florida as a whole. This lends some support to the idea
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
41
SEBiaiTtAN
1A J1 1'ttIC I t> \CD
Sebastian
Indian River
County*
Florida*
2006-
2006-
2006-
2000
2008
2000
2008
2000
2008
Lived and worked in the same city
22.9%
20.9%
23.6%
21.1%
30.9%
32.8%
Lived and worked in different cities
77.1%
79.1%
76.4%
78.9%
69.1%
67.2%
January 7, 2009. This plan put together an overall strategy for implementing economic
development policies in Sebastian.
As suggested above, housing is a critical component for economic development. The labor
force is obviously an indispensible factor of production, and all those members of the labor force
require housing. One dimension of this topic is the affordability of housing. For example, many
companies must consider the affordability of housing when making location decisions, as a
workforce that must make long commutes from more affordable locales is likely to be less stable
and demand higher wages. The housing affordability analysis presented in the City's Housing
Element (updated last year) projects that by 2025, 55 percent of owner occupied households in
Sebastian will pay more than 30 percent of their income for housing costs, the federally
established threshold for affordability. Thirty -five percent of renter households are projected to
pay more than 30 percent of monthly income for housing in 2025. At the same time, the topic of
finding ways to keep Sebastian's children here to raise a family when they grow up was raised
several times during EAR workshop discussions of economic development. The City does not
appear ready to provide enough housing choices /styles for single professionals and young
families just starting out. According to the Future Land Use Element, in 2008 the Future Land
Use Map (FLUM) included potential for an additional 5,002 units, but only 718 of these potential
units would occur in the Medium Density (typically developed as multifamily), Mobile Home or
Riverfront Mixed Use areas, the three of which together represent the land use categories most
likely to yield affordable and workforce housing opportunities. Additionally, an influx of retirees
has traditionally been an economic driver for Sebastian. The number of households with
members over age 65 is expected to approximately double by 2025, suggesting that additional
housing choices appropriate for these households may help Sebastian to continue being an
attractive place to retire.
The location of housing in relation to employment is another important economic development
factor. Large -scale suburbanization of population in the latter half of the 20 century often
placed population centers and large job clusters far apart, raising commute times and the use of
automobiles. In response, many suggested that the answer is a better geographic balance
between jobs and housing. By providing housing opportunities close to employment, it is
hoped, commute times and vehicle use will decrease, and lower income households for whom
transportation costs are often a serious burden will have better access to jobs. It is difficult to
get a precise measure of Sebastian's jobs- housing balance because of the lack of availability of
data on the physical location of jobs at the municipal level. However, the Census does collect
data regarding the location of employment versus the location of residence.
Table 14: Place of Work for Employed Population
Sources: Census 2000; 2006 -2008 ACS
Includes that population living within an incorporated municipality.
As can be seen from the data above, the proportion of workers residing in Sebastian who also
work in Sebastian is only slightly lower than in Indian River County, although both the City and
County are substantially higher than in Florida as a whole. This lends some support to the idea
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
41
SEBiaiTtAN
1A J1 1'ttIC I t> \CD
that Sebastian may benefit from additional jobs to be in better balance with its resident
workforce. As has been noted by the Patterson Bach report cited above, the City currently lacks
sufficient industrial land to attract appropriate industrial growth. The CR -510 corridor to the
south of the City has been put forward by some as a potential location for some
commercial /industrial growth. As discussed in more detail in Major Issue #5, the City should
work closely with County to plan for potential growth and development in that corridor, and in
other parts of the City's proposed annexation reserve area.
Increasingly, attracting employers revolves around quality of life factors. Because physical
location has become less important for many companies such as Internet companies the
quality of life offered for owners /executives and its effect on ability to attract skilled employees
becomes more important. Sebastian has many advantages in this area, including the
surrounding natural resources, climate, small town "old Florida" atmosphere, park system and
easy access to major metropolitan areas.
In order to attract a skilled workforce that will in turn attract high -tech employers, however,
Sebastian must continue to build on these quality of life strengths. As noted above, it is
important to provide appropriate housing for different segments of the community. However,
Sebastian lacks a significant stock of multifamily housing such as apartments and
condominiums that might appeal to younger individuals and families and others who cannot
afford a single family home or who prefer other types of housing.
A potential location for such housing would be as part of a balanced mix of uses along the CR-
512 corridor near 1 -95. This location has a number of advantages for higher density housing,
including the potential to integrate alternative forms of transportation the North County Transit
Hub is in this location, while the greenway along CR -512 is one of the first priorities of the North
County Greenway Plan. The City should consider if this area is annexed in the future a
horizontal mixed -use concept, and by applying the parking and pedestrian infrastructure
strategies identified for nodes in Major Issue #1, Sebastian could foster a development type that
leads to Tess automobile dependence and appeals more to young professionals. Alternative
transportation and protection of the character of Sebastian's neighborhoods are also essential
quality of life factors that Sebastian must foster. Strategies such as careful implementation of
greenways development as discussed in Major Issue #4 can help the City to make strides in
both of these areas.
Through its past economic development efforts and the EAR Major Issues Workshop meeting,
the City has identified green industries, as well as energy efficiency efforts, as desirable
elements in an overall economic strategy. The trend toward more interest in green initiatives
and industry is unmistakable, as interest in global climate change has increased and the
American Recovery and Reinvestment Act (a.k.a. the "stimulus package has made a great
deal of money available to advance the green economy and create "green jobs."
Public agencies have an array of financing tools that can be used to provide public funding for
renewable energy projects that will be publicly owned and also to encourage and assist in the
financing of private community or residential installations.
Tax Exempt Bonds. Traditional tax exempt bonds are bonds issued by a municipal,
county or state government with interest payments that are not subject to federal income
tax, and, in many cases, state income tax as well. Tax exempt bonds can be a source of
capital for solar installation projects.
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Tax Credit Bonds. Tax credit bonds include some of the newer and perhaps lesser
known financing options, such as Clean Renewable Energy Bonds (CREBs), Qualified
Energy Conservation Bonds (QECBs) and Qualified School Construction Bonds
(QSCBs), that have been authorized or enhanced due to federal stimulus legislation,
such as the American Recovery and Reinvestment Act of 2009 (ARRA). Tax credit
bonds are bonds that allow the holder to claim a federal tax credit instead of receiving
tax exempt interest.
Subsidized Taxable Bonds (Build America Bonds). One of the most popular financing
programs authorized by the ARRA is the issuance of Build America Bonds (BABs). Like
QECBs and QSCBs, BABs were created as a means to stimulate the economy by
assisting state and local governments in financing public capital projects at lower
borrowing costs.
Loans and Grants. Public agencies may also be able to finance solar projects with loans
or grants funded in whole or in part by the federal stimulus package. For example,
the California Energy Commission (CEC) has established a $110 million Energy
Efficiency Grant program that can fund solar energy improvements if combined with
eligible energy- efficiency improvements. These programs have proved to be so popular
that they are currently oversubscribed.
Sustainable Energy Financing Districts. Sustainable energy financing districts offer loan
programs that are user friendly, in that property owners are not strapped with large down
payments or high financing costs. The loan is secured by contract assessments levied
on the owners' properties. These districts can be used to finance energy- efficiency
projects, solar panels and similar projects for both homeowners and commercial
property owners.
Public agencies and private businesses are increasingly looking to private investors and
renewable energy developers to provide innovative funding mechanisms for renewable energy
projects. At a time when public agencies face budgetary challenges and private companies may
have difficulty obtaining traditional financing, the availability of private financing through such
means as lease arrangements and power purchase agreements can be the most viable option.
Power Purchase Agreements. Power purchase agreements (PPAs) can allow a private
company or a public agency to purchase solar energy on a monthly basis from a private
solar company, much like purchasing electricity from a local utility. Under the agreement,
a public agency or business hosts the solar equipment on its property and pays for the
energy generated at a set rate per kilowatt -hour, while the solar company maintains
responsibility of ownership and /or maintenance of the system. A PPA provides financing
flexibility and predictable future energy rates, with minimal upfront costs to the business
or public agency.
Private Tax Equity Financing. Tax equity financing is becoming one of the most common
ways to fund large private solar projects. Under such arrangements, investors front the
cost of the project in exchange for taking the tax credits available from the solar project.
Tax equity investors then use those credits as part of a strategy to shelter otherwise
taxable income.
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Traditional Financing. For a company that has available capital or access to traditional
financing through real estate financing, capital financing or a line of credit, there can be
advantages to self financing a renewable energy project. When a project is self
financed, a company keeps the tax credits and incentives that would normally be given
to tax equity investors. For a company with strong cash flow and profit, this may be
particularly attractive, as the tax credits and accelerated depreciation of the solar project
can provide an immediate tax benefit that will offset the cost of the project.
Florida Enerqv Approach
The Florida Energy Climate Commission was created by the Florida Legislature in 2008. It is
housed within the Executive Office of the Governor and is the primary organization for state
energy and climate change programs and policies. Comprised of nine members appointed by
the Governor, Commissioner of Agriculture and Consumer Services, and Chief Financial Officer,
the Commission holds a variety of responsibilities, including administering financial incentive
programs; completing annual assessments of Florida's Energy and Climate Change Action
Plan; and providing recommendations to the Governor and the Legislature.
The Commission will also work cooperatively with other state entities, including the Florida
Public Service Commission, the Florida Department of Environmental Protection, the Florida
Department of Community Affairs, and the Florida Energy Systems Consortium, to develop
state energy and climate change policies and programs. Examples of programs being used in
Florida include:
State Energy Grant Program
ARRA Funding and Opportunities
State Energy Program (SEP): $126,089,000
Energy Efficiency and Conservation Block Grant (EECBG): $30,401,600
Energy Efficient Appliance Rebate: $17,585,466
Energy Assurance Grant Program: $1,881,676
Tourism has also been identified as a potential employment growth area. The communities of
the Sebastian River Area border the headwaters of the St. John's River adjacent to the Barrier
Island and Atlantic Ocean, and nestle quietly between Vero Beach and Melbourne on the Indian
River Lagoon. The unspoiled natural beauty of Sebastian is recognized for top fishing, surfing,
skydiving, and watersport enthusiasts.
Vestiges of 18th century Spanish culture can be revisited at the various historical and
archaeological museums in the area, while treasure hunters continue to search these waters for
gold, jewelry, and other artifacts lost in the sinking of the 1715 Spanish Fleet not far off our
shores.
The Sebastian River area is also host to a multitude of nature -based activities truly an eco-
lovers paradise. Pelicans, bald eagles, manatees, loggerhead turtles and dolphin can be seen
from the Indian River Lagoon. For kayakers, the Sebastian River is a trip through pristine
wilderness. A boardwalk nature trail through the Environmental Learning center offers a view of
pine trees, mangroves, thousands of species of animals, fish, birds and over 36 rare or
endangered species.
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Sebastian has the potential to increase tourism as part of an overall economic development
strategy. Major Issue #4 discusses some of the area's assets, particularly with regard to water
based eco- tourism, and how to continue development of those assets. It is important that the
City ensure that uses supporting eco- tourism, such as kayak and bicycle rentals, hotels, etc. are
allowed in appropriate locations and provided adequate regulations to ensure their compatibility
with surroundings. Similarly, a pedestrian friendly, thriving Riverfront area is important to the
development of additional tourism. The Riverfront area is the City's premiere location to
showcase itself a genuine "old Florida" coastal town. Alternative transportation can also be a
boon to tourism. The restoration of passenger service on the FEC Railroad bringing
passengers to Sebastian whether via a stop in the Riverfront area or via shuttles from rail
stops in Vero Beach /Melbourne would have the potential to bring many visitors to Sebastian.
As the City continues to develop alternative transportation options, visiting Sebastian for several
days without the need for an automobile could someday be a viable option.
Recommendations:
As mentioned above, a new Economic Development Element will be developed as part of the
EAR process, to later be incorporated into the Comprehensive Plan. The recommendations
developed as part of this Major Issue will be incorporated into the proposed Element and other
elements of the Plan. The following are recommendations resulting from the above analysis:
Create a new Economic Development Element to be incorporated into the
Comprehensive Plan, and amend other elements as necessary for internal consistency.
Amend the Future Land Use Element to ensure that the City's land development
regulations will allow for eco- tourism related uses in appropriate locations and provide
suitable regulations for those uses.
Consider the potential for employment generating commercial /industrial uses in the CR-
510 corridor south of the City. Seek to undertake joint planning activities with the County
consistent with recommendations of Major Issue #5. As part of these joint planning
efforts, implement the greenways development and alternative transportation
recommendations of Major Issues #1 and #4.
Incorporate the Airport industrial land marketing strategies from the Patterson Bach
report into the new Economic Development Element.
Ensure that the new Economic Development Element is geared toward specific funding
opportunities for green industries /jobs and energy- efficiency efforts.
Encourage the further development of housing opportunities in the Riverfront area.
Support greenways efforts (consistent with Major Issue #4) and use this to support the
image of Sebastian as a more green alternative to other localities, emphasizing the open
space and alternative transportation benefits of greenways development.
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Major Issue #3: Balancing Sustainable Growth with Protection of Community Character:
Most people that live in Sebastian do so because they like the city, its environs and the lifestyle
it affords. Therefore, protection of the community's character is a priority for the community. At
the same time, residents desire economic growth and job creation, which can produce side
effects increased traffic, environmental impacts, etc. that threaten community character. This
analysis will address how to balance the need for growth with protection of community
character, including a review of existing zoning overlays that apply to the Riverfront and CR
512, areas that are important to the city both economically and as centers of community
character.
Sebastian has a unique, small coastal town character that its residents are proud of. Many
factors contribute to the community's character, including the surrounding natural beauty of the
Indian River Lagoon, Atlantic Ocean and St. Sebastian River. To preserve these features,
several important areas are in public ownership, including the first national wildlife refuge in the
United States, Pelican Island, the St. Sebastian River Preserve State Park, Sebastian Inlet
State Park and several other examples. The City's parks and open spaces are also important to
community character, and include about 315 acres of traditional parks, about 80 acres of
undeveloped park properties, the 160 -acre municipal golf course property and approximately
670 acres formally in Conservation. Much of Sebastian's character is also due to its attractive
and historic Downtown /Riverfront area. A number of historic properties exist in this area, Other
commercial areas the in City affect the City's character, sometimes positively, sometimes
negatively. Finally, the City boasts stable single family neighborhoods that are generally
attractive and well -kept.
Increasingly, issues of community character and quality of life are related to economic
development. This has long been true, to some degree, for coastal Florida due to the important
part played by tourism in the local economy. It is more important than ever, though, as many
business location decisions now revolve around what places have a quality of life appealing to
entrepreneurs /executives and to existing and prospective employees. But economic
development itself can sometimes be a detriment to community character when not managed
properly, whether it be from incompatible land uses or architectural design, too much traffic,
environmental damage or other such impacts. On the other hand, excessive regulation may be
a drag on economic development, preventing business expansion or causing a potential
business to look elsewhere. Sebastian must continually search for the right balance as it seeks
both economic prosperity and preservation of its small town character and quality of life.
The policies included below are those that go beyond such commonplace Plan provisions as
land use compatibility and are directly aimed at the issue of community character.
Future Land Use Element:
Policy 1- 2.1.3: Reinforce and Enhance Appearance of Residential Areas and
Provide Amenities. The City, together with the private sector, shall
consider enhancing preservation of open space for scenic vistas,
especially along transportation corridors and along the Indian River,
the Sebastian River, Schumann Lake, as well as along the
Schumann, Elkcam and Collier Creek waterways or other similar
aesthetic corridors adjacent to transportation facilities. Such
enhancement shall include application of community appearance
criteria which reinforces good principles of design.
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Policy 1- 2.2.3: Improve the Image of the Downtown as the Central Commercial
Core Area. The City shall continue to enforce the Riverfront design
regulations, which provide a physical theme for development and
redevelopment opportunities reinforcing the unique waterfront setting
of the Downtown area.
Policy 1- 2.6.1:
Reinforce and Enhance the City's Community Appearance. Major
attributes shall be preserved through application of design review
standards and management of signs, landscaping, open space, tree
protection, and other urban design amenities. Special emphasis shall
be placed on preserving and /or improving the character of major
natural and manmade corridors, including the intracoastal shoreline,
the estuarine and river systems, major drainage corridors, and major
transportation corridors which serve as a focal point for the motoring
public and an inviting gateway to visiting tourists.
Policy 1- 2.9.5: Preserving Riverfront Access. River access, either through boat
ramps, docks and piers or through walkways, scenic easements or
breezeways, is a treasure to be enjoyed by all of the citizens of
Sebastian. The City shall continue to develop programs and identify
funding sources to acquire access to the river.
Policy 1- 2.9.6: Preservation of Existing Assets within the Riverfront. The
protection, restoration, and enhancement of existing assets, including
historical structures, is important in implementing the "Old Florida
Fishing Village" theme. The City shall continue to enforce the
procedures and ordinances adopted for this purpose. By 2010, the
City shall develop programs and identify funding sources to protect,
restore and enhance the historical structures in the Riverfront District.
Policy 1- 2.9.7: Reinforce and Enhance Appearance of City Gateways along the
US 1 and CR 512 Corridors. The City, together with the private
sector, shall continue to introduce landscaping and urban sign
amenities along gateways to the City particularly the US 1 and CR
512 corridors. Such enhancement shall include application of
community appearance criteria which reinforces good principles of
design as well as preserving unique characteristics and open space
for scenic vistas. The gateway improvements shall also address the
implementation of uniform streetscape amenities, enhanced signage
and intersection improvements.
The City currently has several ongoing regulatory measures, capital projects and the like to
protect and enhance community character, beyond typical requirements. First, the City has
three performance zoning overlays the Riverfront "Old Florida Fishing Village" Overlay district
covering the Downtown /Riverfront area east of the FEC Railroad, the Sebastian Triangle
Overlay District, located on several properties generally between the east- and west -bound
branches of CR- 512 /Sebastian Boulevard west of the railroad, and the CR -512 Overlay District,
which covers all properties abutting CR -512 that are within the Sebastian City limits (these
zoning overlays are shown on the map on the following page). These overlays impose special
regulations over and above those of the underlying zoning with regard to such things as site
design, architecture, landscaping, signage and so on. Two historic districts and three historic
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properties are designated on the National Register of Historic Places (NRHP). While this does
not confer any regulatory protections, the designation does carry with it prestige as well as
access to federal tax credits for preservation and restoration, which can help to preserve historic
assets. Additionally, the City has adopted regulations requiring that where a proposed
development would impact a historic /archeological site that has been identified in the
Comprehensive Plan, such impact must be mitigated. This is enforced through site plan review.
Additionally, through the Community Redevelopment Agency (CRA), a quasi- independent tax
increment financing district covering primarily the Downtown /Riverfront area, the City has been
implementing property acquisitions and other activities to strengthen and enhance the City's
working waterfront. The CRA also undertakes a number of other redevelopment activities within
its area, such as funding for festivals and other Downtown promotion activities, public
improvements and a facade /sign /landscape matching grant program, all of which help to retain
and enhance the City's unique character.
At this time, some potential activities or issues can be forecast which may significantly impact
the community's character. First is the impact of land uses existing or potential nearby but
outside the City's boundaries. Properties adjacent to or very near the City's existing boundaries
are important because they are likely to be perceived as being part of the City even if they
technically are not. Also, such properties may eventually become a part of the City through
annexation. Also important, is potential development that, while it may be somewhat more
distant, could have large impacts to the community's infrastructure due to its scale. This
primarily refers to potential development in the City of Fellsmere, which in the past several years
has rapidly expanded its boundaries and sought to increase potential development by many
times. Fellsmere is currently working through a number of compliance issues with DCA with
regard to plan amendments on about 18,000 acres.
One area that promises the possibility of community character enhancement is the development
of greenways, discussed in greater detail as part of Major Issue #1 and Major Issue #4. The
MPO's North County Greenways Plan proposed enhanced bicycle pedestrian ways linking
parks and other green spaces, links to surrounding natural areas. Most of these greenways
would occur along major roadway corridors. This promises more green space, enhanced
recreational opportunities and, with attention to land use and design, perhaps viable options for
alternative transportation.
Generally, the City's three zoning overlays have been very successful. As mentioned earlier,
the overlays primarily address issues such as architecture, site design, signage and
landscaping. All comments received have suggested that these regulations have increased the
quality of development in the areas they cover, and have advanced Sebastian toward consistent
design themes in these districts. Staff has expressed that there have been comments that
overlays may be discouraging building due to cost factors in meeting the requirements.
However, such claims are difficult to judge, as the real estate market and construction industry
have been moribund for some time, and it does not appear this phenomenon has been more
prevalent in Sebastian or in places with a more stringent level of design expectations. At the
same time, weakening or lifting these additional regulations entirely is not something that should
be taken lightly. Those who have developed their properties in these areas under existing
regulations did so with reasonable expectation that others would follow the same or similar
standards, thus helping to protect their own property value. Further, the overlays are plan
implementation tools that, like much plan implementation, requires steadfast application over
long periods of time to yield desired results. While the overlay provisions and their relation
over both the short-term and long -term to encouraging development in Sebastian is a matter
of balancing competing interests and may best be handled at the political level, one element
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
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that would be needed to make an informed decision is objective data and analysis comparing
rates of development in these areas with those in similar areas in Sebastian or nearby that have
both similar and less stringent requirements. This would help to determine whether, and if so to
what extent, overlay requirements may be discouraging development.
The Riverfront area is perhaps the most important exhibit of the City's character, as it has the
beautiful view of the Indian River Lagoon, a concentration of historic properties and is overall
the most pedestrian friendly part of the City, among other assets. The City has shown
commitment to this area as its commercial and civic core through development regulations
(including the aforementioned zoning overlay) and numerous public investments in parks,
roadway improvements and pedestrian system enhancements. However, the character of the
Riverfront area faces both threats and opportunities. One significant issue that the City has
confronted is the potential widening of US -1 through the Riverfront, as well as the speed limit on
US -1. Currently, the Comprehensive Plan is silent on these issues. The relationship between
this roadway and the land uses in the Riverfront area and whether it functions more as an
arterial moving people through Sebastian or as a complete, multi -modal street through a
downtown location will have a profound impact on Sebastian's character.
The effect of development in Fellsmere and nearby unincorporated land has been a source of
concern in Sebastian, and was expressed several times during the EAR workshops. The City of
Fellsmere has adopted comprehensive plan amendments adding development rights for
thousands of homes and substantial commercial space on over 18,000 acres of currently
agricultural land. However, the amendments are not yet in effect because DCA has found them
not in compliance, largely based on failing to prevent urban sprawl and failing to show need.
Some fears of Fellsmere's development impacts on Sebastian may be exaggerated. While
population growth is expected in the area, proposed development in Fellsmere is well beyond
any reasonable expected growth in the next couple of decades. With a reasonable amount of
development capacity remaining in areas closer to the coast, including Sebastian, it is unlikely
that a large number of people will choose to live further west where infrastructure largely does
not yet exist. Also, in spite of changes to the development of regional impact (DRI) process
under Senate Bill (SB) 360, the DRI process would still apply to large -scale development in
Fellsmere. This process is a good opportunity to ensure that developers will mitigate for off-site
infrastructure impacts.
Unincorporated areas that are within the City's proposed annexation reserve area (per the
proposed ISBA) should enhance, rather than detract from, Sebastian's character. General
recommendations concerning annexation, land uses and joint planning with Indian River County
are provided in Major Issue #5. Additionally, with respect to those areas south of the City that
may eventually be annexed, the City should consider policies allowing for conservation
development or other development regulations that will allow for retention of the agricultural
function. Clustered development would not only be more efficient to serve with infrastructure
including bicycle pedestrian facilities but would also retain a significant amount of existing
open space, enhancing the City's character over the long term.
Recommendations:
Based on the analysis presented above, the Comprehensive Plan should be amended as
follows:
Amend the Intergovernmental Coordination Element to specifically state that the City will
make full use of the development of regional impact process as nearby lands seek
development approval to ensure that impacts to Sebastian's infrastructure is mitigated to
the greatest extent possible.
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Ensure that upon annexation to the City of Sebastian, lands currently to the south of the
City will be subject to the following regulatory provisions:
Allowance for the optional use of conservation subdivisions or other similar
provisions allowing clustering of development and preservation of the remainder
for continued use as agriculture or open space.
Application of a zoning overlay on the CR -510 corridor similar to that which
currently exists along the CR -512 corridor within the City.
Specifically include in the Transportation Element a policy statement that Sebastian
considers the function of the Riverfront area a multi -modal commercial core a higher
priority than the efficient movement of vehicles along US -1, and that the City's does not
support any future widening /additional lanes on US -1 through the City's highway.
Further, the Transportation Element should include a policy statement that the City
supports maintaining a slow speed limit on US -1 with the City's boundaries consistent
with a dense, pedestrian- oriented area.
Amend the Transportation Element to include a policy that the City will continually seek
funding for multi -modal streetscape enhancements within the Riverfront area.
To ensure that properties that may be annexed are only developed in a high quality
manner consistent with Sebastian's desired character, implement the recommendations
in Major Issue #5 that pertain to these areas.
To enhance community character by increasing green space, recreational opportunities
and alternative transportation modes, implement the recommendations in Major Issues
#1 and #4 concerning greenways and blueways.
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Facility LOS Standard 2009 2015 2020 2025 Existing
Demand Demand Demand Demand
Neighborhood Parks
(acres)
2 acres 1,000 pop.
45.44
56.14
63.47
70.23
52.15
Community Parks (acres)
2 acres 1,000 pop.
45.44
56.14
63.47
70.23
261.5
Tennis Courts
1 court 10,000 pop.
2
2
3
3
10
Basketball Courts
1 court 10,000 pop.
2
2
3
3
2
Baseball /Softball
Diamonds
1 field 5,000 pop.
4
5
6
7
5
Football /Soccer Fields
1 field 25,000 pop.
1
1
1
1
3
Equipped Play Areas
1 area 7,500 pop.
3
3
4
4
7
Boat Ramps
1 ramp 12,500 pop.
1
2
2
2
3
Shuffleboard Courts
1 court 5,000 pop.
4
5
6
7
4
Volleyball Courts
1 court 12,000 pop.
1
2
2
2
Golf Course (holes)
18 50,000 pop.
18
18
18
18
18
Major Issue #4: Future Development and Funding of the Park and Recreation System:
The City currently has a wide variety of parks, well distributed throughout the City, and the park
system continues to grow incrementally. Additionally, the City has a dedicated financial resource
in park and recreation impact fee funds to finance further capital improvements. As part of this
analysis, the comprehensive plan's park system data regarding facility needs will be
reexamined, and funding needs and sources for operations and maintenance will be
considered. An area of possible further park development and one that could relate strongly to
economic development via tourism is the development of greenways and blueways (water
based trails).
The Sebastian Park system consists of 19 developed park sites totaling approximately 315.01
acres, the City Golf Course facility (160 acres) and ten undeveloped park properties that total
79.6 acres. Much of this undeveloped park property though not all is suitable for passive
recreation. Additionally, there are four County parks adjacent to Sebastian's boundaries,
specifically the North County Regional Park on the north side of CR -512 west of the City
boundaries, Dale Wimbrow and Donald MacDonald parks, located adjacent to one another
between the St. Sebastian River and the Airport and West Wabasso Park north of CR -510. St.
Sebastian River Preserve State Park is located just west of the City boundaries, on the west
bank of the St. Sebastian River, extending west of 1 -95 and north into Brevard County. A map
showing the locations of parks near Sebastian, including developed parks, the Golf Course,
nearby county parks and the St. Sebastian River Preserve State Park is shown on the next
page.
The City's Schedule of Capital Improvements also indicates the development of a 3.8 -acre park
at Barber Street and Acorn Terrace, as well as the development of a 1.9 -acre park at Celtic
Avenue and Crown Street.
The City's LOS standard for parks is two acres of community parks per 1,000 population, plus
two acres of neighborhood parks per 1,000 population. The Recreation and Open Space
Element further sets out LOS standards for a number of recreational facilities. The table below
shows projected demand for parks and facilities through 2025 according to existing LOS
standards, as well as existing facilities.
Table 15: Current and Projected Park Facility Needs
Source: City of Sebastian Recreation and Open Space Element
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The City charges a Recreation Impact Fee (RIF) on new development to provide for expansion
of the recreational system to serve the needs generated by new development. The City's parks
system otherwise depends upon general fund revenue or grants for operations and
maintenance. The City's Golf Course at the Airport property is financially self- sufficient for
operations and maintenance.
As the Major Issue description above notes, Sebastian is well served by parks, and they are
well- distributed throughout the City. While undeveloped park properties the City has acquired
from General Development Corporation (GDC) provide multiple opportunities to further expand
the system if needed, the City's park system is nearing maturity. This, combined with the
completion of the North County Greenways Plan by the Indian River Metropolitan Planning
Organization (MPO) suggests that greenways and blueways may be appropriate foci for further
development of the City's recreation system. This are also closely related to the issues of
alternative transportation and economic development considered in Major Issues #1 and #2,
respectively.
The following are the provisions of the Sebastian Comprehensive Plan that relate most closely
to this issue:
Transportation Element:
Objective 1.6:
Policy 1.6.1:
Policy 1.6.2:
Policy 1.6.3:
Policy 1.6.4:
Multi -modal System. The City shall promote alternative modes of
transportation to provide a safe and efficient multi -modal system and
to provide for a possible reduction of individual motor vehicle travel.
All major roadways shall be designed as complete transportation
corridors incorporating bicycle and pedestrian features, and planning
for transit features to start creating a true multi -modal system.
By 2011, the City shall prepare a Greenways Plan for Bicycle and
Pedestrian access.
The City should provide adequate ROW and construct bicycle ways
along corridors to be specified in the Bicycle Plan.
Bike -paths shall be established linking arterial and collector streets.
Policy 1.6.5: Sidewalks, shall be mandatory on all new roadway construction.
a Sidewalks shall be constructed, concurrently with new non-
residential development, by the developer.
b New residential developments with densities of one or more
dwelling units per acre shall provide sidewalks on both sides of
every street.
Policy 1.6.6: A Pedestrian Improvement Plan shall be prepared, adopted and
implemented by 2011.
Policy 1.6.8: By 2011, the City shall develop standards in the land development
regulations for access to bicycle and pedestrian systems (such
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Policy 1.6.9:
Recreation and Open Space Element:
Policy 7- 1.1.1: Level of Service Standards for Park and Recreation Facilities
[lengthy, expresses the City's adopted park and recreation LOS
standards]
Policy 7- 1.1.3:
Policy 7- 1.1.5:
standards shall apply to new developments, substantial improvements
of existing developments, and to road improvements).
By 2011, the City shall review the land development regulations and
address the provision of bicycle parking and circulation, pedestrian
walkways, and handicap accessible facilities within new developments
and existing developments undergoing substantial improvements.
Mandatory Land Dedication or Fees in Lieu Thereof. The City shall
enforce provisions for the mandatory dedication of land for parks and
recreation or fees in lieu thereof contained in §20A- 17.1(H) of the
Subdivision Regulations. These regulations are intended to assure
that new development provides necessary recreation lands, facilities,
and /or fees in lieu thereof in order to accommodate the demands
generated by new development.
Maintenance of Existing Recreation Lands and Facilities. The City
shall maintain existing recreation and facilities through the use of
proper management and funding techniques. The City shall assure
that recreation facilities are well managed, well maintained, and that
quality recreation programs are available to all residents. This shall
be partially achieved by continuing efforts toward collecting,
maintaining, and updating data concerning public and private
resource inventory, recreation improvement, and demand factors, and
by improving design criteria and evaluation to attain a high quality
park and recreation system.
Policy 7- 1.2.1: Implementing Land Development Code. In addition to the
subdivision ordinance mandatory park and recreation land and
facilities regulation, the City shall enforce land development
regulations which include specific open space definitions and
standards addressing protection of open space, natural vegetation,
landscape, and signage. Regulations shall include stipulations
governing the provision and use of open space for buffering,
protection or natural corridors, including drainageways, as well as
other commonly accepted uses.
OBJECTIVE 7 -1.3: ACCESS FACILITIES. After January 2004, all public parks and
recreational facilities shall have operational automobile, bicycle
and pedestrian facilities.
Policy 7- 1.3.1: Right -of -Way Improvements. The City has established vehicle
access facilities serving all public and private recreational sites. As
future roadway improvements are analyzed, the City shall provide for
nonmotorized transportation needs using FDOT design standards for
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Capital Improvements Element:
Policy 7- 1.3.3:
Policy 7- 1.5.4:
Policy 7- 1.5.10:
Policy 1.2.9:
bicycle facilities. No new roadway improvements are currently
scheduled by the City.
Bicycle /Pedestrian Accessways. All neighborhood parks are
provided with bicycle and pedestrian accessways. In planning and
designing these accessways, the City shall remove barriers limiting
access to the physically handicapped.
OBJECTIVE 7 -1.4: ACCESS TO INDIAN RIVER LAGOON AND TRIBUTARIES. By
December 31, 2001 the City shall adopt amended land
development regulations which include performance criteria
designed to preserve access points to the Indian River Lagoon,
St. Sebastian River, and their tributaries.
Utilize Grantsmen and Other Appropriate Fiscal Advisors. The
City shall assure that the advantages of all appropriate local and
non -local sources of financial and technical assistance are sought
and received. Alternative funding sources and impacts must be
monitored continually so that appropriate evolving State and
federal assistance programs shall be aggressively pursued to
ensure the attainment of recreation objectives in a cost effective
and fiscally equitable manner.
Fiscal Management. Review and evaluate park land acquisition
proposals and recreation development programs to determine
changing fiscal implications. Each year fiscal management
policies including the capital improvement program and budget
shall be reviewed, evaluated, and refined to reflect current
program priorities for parks, recreation and open space. The
capital improvement program shall reflect changes in recreation
needs based on consumer demands and the impact of
development trends and shifts in population magnitude and
distribution.
Adequate Parks and Recreation Funding. The following
procedures shall be utilized to pursue adequate funding for parks
and recreation capital projects:
Grants shall be pursued and used for the completion of parks
and recreation capital projects.
Funds collected through the implementation of the Parks and
Recreation Impact Fee.
As can be seen from the data presented above, the City is currently meeting all parks and
recreation LOS standards (exception: no data was available regarding the existing number of
volleyball courts). With the addition of 5.7 acres of neighborhood park and with the scheduled
development of parks at Barber and Acorn, and at Celtic and Crown, LOS standards for acres of
neighborhood parks would continue to be met beyond 2015, while existing community parks are
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adequate to serve projected population well beyond the City's 2025 long range planning
horizon. With some exceptions, existing facilities would satisfy LOS standards in many cases.
The parks and recreation LOS standards as currently devised are of limited usefulness at this
stage of Sebastian's development. While the City finds itself with more than adequate park land
to meet an overall LOS standard of four acres per 1,000 population (two acres of neighborhood
parks plus two acres of community parks per 1,000 population), it could be expected to fall short
of neighborhood parks, according to projected population, sometime between 2015 and 2020.
One of the main purposes of distinguishing between neighborhood and community parks is to
ensure that residents have parks nearby their homes, in other words to effect a more equitable
spatial distribution. However, City staff has observed that park preferences differ between
different areas of the City, with some areas preferring not to have additional
neighborhood /pocket parks, and that, in general, those areas that want these types of facilities
currently have them. The City could remedy its projected neighborhood park LOS deficiency by
building additional neighborhood parks. However, if this results in neighborhood parks being
built in places where they are not wanted, then the LOS standard has become
counterproductive as policy.
Likewise, the facility- specific LOS standards contained in the Recreation and Open Space
Element (number of tennis courts, basketball courts, etc.) no longer seem to make sense as
Sebastian's development continues. First, they do not appear to have provided a practical, real
world guide to facility development. For example, the City now has 10 tennis courts and seven
"equipped play areas" (playgrounds), far beyond what is projected to be needed even in 2025 to
meet LOS standards. Meanwhile, the City has developed an entire skate park facility, a dog
park and several walking trails, none of which were driven by LOS standards, but rather by
opportunities and community desires. These facility- specific LOS standards have not been
updated in over 10 years, even as community preferences have changed. This is largely
because the standards were included in the Comprehensive Plan, which is updated relatively
rarely. Fortunately, the City's park system was developed with the flexibility to respond to
evolving preferences. These facility- specific LOS standards should be removed from the Plan
to reflect that reality.
The concept of greenways was popularized in the United States in the 1990s, and has remained
an important planning tool for recreation, conservation, open space and transportation. There
are a variety of definitions for greenways, but the one used in the North County Greenways Plan
will form a starting point for this discussion:
The North Indian River County Greenways Master Plan was adopted by the Indian River County
Metropolitan Planning Organization (MPO) in late 2008. The goal of the plan is "...to establish
an interconnected system of greenways and blueways in Indian River County that promotes
multi -modal transportation, connects urban and rural areas locally and regionally, and enhances
recreation and conservation opportunities." This plan builds upon several other plans and
initiatives, including the St. Sebastian River Greenways Plan and the conservation boardwalk
near Sebastian City Hall.
linear open space along natural or manmade corridors with facilities
for non motorized travel, including walking, bicycling, running, horseback riding, and
other uses."
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The North County Plan recognizes the utility of greenways for both recreation and multi -modal
transportation, and establishes the framework for an interconnected system of greenways and
blueways. The Plan provides a strong framework for Sebastian to continue to improve
recreational opportunities for residents despite less expected construction of traditional parks,
provide residents and visitors with convenient and non motorized access to the recreational
opportunities of nearby rural and marine natural resources and provide for alternative means of
transportation, primarily through better pedestrian and bicycle facilities. The Plan also takes
note of the economic benefits of greenway development, which is primarily via improvements in
quality of life and enhanced eco- tourism activities. The map on the following page shows
existing and planned greenways according to the North County Plan, along with existing City,
County and State park and recreation facilities as well as conservation areas.
A blueway is a water path or trail that is developed with launch points, camping locations and
points of interest for canoeists and kayakers. The blueway concept is similar to that of
greenways, except that the corridors are waterways, and focus is almost entirely recreational,
as opposed to a means of transportation. Prominent examples of blueway systems in Florida
include the Great Calusa Blueway in Lee County, the Paradise Coast Blueway in Collier County
and the Charlotte County blueway system.
The Indian River Lagoon Blueway has been designated by the State of Florida. The Lagoon is
North America's most biologically diverse estuary, and many believe that the Lagoon offers
some of the best flat -water kayaking in the world, making this natural resource a potential
tourism asset. A Plan for the Blueway managed by the State Department of Environmental
Protection (DEP) calls for public acquisition of 26,610 acres on the east and west sides of the
Lagoon. Acquisition sites near Sebastian include an addition to the Pelican Island public
holdings and a site on the west side of the Lagoon near CR -510.
Likewise, the St. Sebastian River is popular with canoeists and kayakers, and offers natural
scenery enhanced by Indian River County recreational facilities: camping and launching
opportunities at Dale Wimbrow and Donald MacDonald Parks and a canoe /kayak launch area,
complete with paved parking, off of CR -510 just north of CR -512. The Blueways Resources map
shows existing and potential blueways resources.
The larger canals within Sebastian have less to offer environmentally, of course, than the Indian
River Lagoon or the St. Sebastian River, but nevertheless should not be ignored. Via canal a
canoeist or kayaker could feasibly access Schumann Lake Island, the Stormwater Park and
Hardee Park, and on to the St. Sebastian River and, eventually, the Lagoon. Many people living
along such canals already have this opportunity. Needed improvements, however, to make
access convenient to the general public would be minimal, such as ensuring that the launching
of small craft is possible at each of the parks along a canal. Directional signage is also a
possibility, but again the needed improvements would be minimal.
The greenways planned through Sebastian by the MPO should be considered the "backbone" of
the future pedestrian bicycle system. The City should evaluate the need for other greenways
besides those designated by the MPO's plan based on such factors as: opportunities to
improve the connectivity of the City's open space /greenway system; the need to improve access
in any part of the City that would otherwise have inadequate access to the open
space /greenways system; or, providing connections between land uses that would benefit from
the availability of improved bicycle pedestrian infrastructure, particularly where this might result
in a reduction of vehicle miles traveled (VMT). Once complete, most residents of Sebastian
would have easy access to the greenways system. Based on population distribution as of the
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2000 Census, 81.3% of the population would be within one quarter mile (about a 5 minute walk)
of a greenway. When including both parks and greenways, 90.6% of residents would be within
one quarter mile of public open space. Given this, Sebastian should primarily focus greenways
efforts on ways to make implementation of the North County Greenways Master Plan a success,
should coordinating with other transportation and recreation agencies for implementation
activities.
Two greenways projects significant to Sebastian emerged as Tier 1 priorities in the MPO plan,
meaning that some implementation activities would occur in the first five years of the plan. The
first project in overall priority is the Trans Florida Coastal Railroad Corridor, which connects
Sebastian (vicinity of the CR- 510/CR -512 intersection) to the Fellsmere Water Conservation
Area to the west. The next priority is the South Sebastian Greenway Corridor, which runs north
from Barber Street through the Stormwater Park and Sebastian Harbor Preserve, also
connecting to Easy Street Park and Schumann Drive Park. This greenway would also connect
to the North Sebastian Greenway Corridor, which would further connect these assets with
Sebastian Elementary School, City Hall, the North Sebastian Conservation Area (NSCA) and,
possibly, Roseland Road to the north of the City limits. More details about these and other
projects can be found in the North County Greenways Plan.
Several policies in the Transportation Element seem to address the need for detailed bicycle,
pedestrian and greenways planning in Sebastian. The policies use the terms "Bicycle Plan
"Greenways Plan" and "Pedestrian Improvement Plan or which the latter two are to be done by
2011. It is unclear whether these are supposed to refer to the same document or separate
documents. Also to be done by 2011 are reviews of the land development regulations to
address access to bicycle and pedestrian systems, bicycle parking and circulation, pedestrian
walkways and handicapped accessible facilities. Given the requirements of SB 360 (discussed
in more detail in Major Issue #1), it seems that these policies should be clarified, and these
pedestrian, bicycle and greenways plans should be completed together as part of a plan for
multi -modal mobility.
Future funding of the parks and recreation system has become a concern for Sebastian. While
the City's Recreation Impact Fee (RIF), along with grants, have generally provided adequate
revenues to fund needed capital improvements, concern has focused on the cost of operations
and maintenance of park facilities once they are built. This is reflected both in comments by
City officials and in the FY 2009 -2010 Budget Document, which states that: previously
scheduled neighborhood parks and playground improvements projects have been cancelled
due to concerns that the City will not be able to maintain them properly."
As touched upon earlier, the City is unlikely to continue to develop parkland at rates seen
previously. The City should begin to shift further development of open space and recreation to
extend outward from its parks throughout the City, connecting the City's existing parks
resources via the greenways discussed above to create a more integrated open space system.
This will improve access to recreational facilities, make the City's park system more accessible
and provide a green, nonmotorized connection between the developed environs within the City's
jurisdiction and the recreational opportunities afforded by the beautiful natural resources
surrounding Sebastian.
This shift makes fiscal sense for several reasons. First, the greenway system serves two
purposes: first, as open space /recreational opportunity; and second, as infrastructure for
walking, bicycling and other non motorized transportation modes. Thus, capital funding, and in
some cases maintenance funding, may come from transportation funds in addition to recreation
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funds. This is essentially a savings through efficiency, as the same infrastructure is used for
two purposes. Because the trails planned through Sebastian are part of the MPO's broader
plan, a large portion of funding would come from outside sources. For example, greenways are
heavily funded under the federal Transportation Enhancements (TE) program, for which strictly
recreational facilities would not be eligible. Additionally, greenways improvements can be
integrated into ongoing infrastructure projects, substantially lowering their cost. The North
County Greenways Plan estimates an annual operations and maintenance cost of $21,000 per
mile, and a GIS analysis indicates that there would be approximately 26 miles of greenways at
buildout of the system, representing an annual cost of $546,000. Maintenance, however, could
be expected to be a multi- agency collaboration, and any portion of costs for which the City might
be responsible would likely be negotiated on a case -by -case basis.
Recommendations
Based on the above analysis, the following are recommendations for amendments to the
Comprehensive Plan. Also note that those recommendations of Major Issue #1 that relate to
encouraging bicycle and pedestrian activity are also related to this Issue.
Revise the recreation and open space LOS standards to a simple standard of four acres
per 1,000 population, ending both the distinction between community and neighborhood
parks for LOS purposes and removing the facility- specific LOS standards currently in the
Plan.
Include policies encouraging public private partnerships with local organizations that
promote bicycling, hiking, canoeing /kayaking and other forms of eco- tourism.
Revise policies in the Transportation Element calling for pedestrian, bicycle and
greenways planning and for land development code reviews dealing with similar issues,
to clarify that such plans and studies are to be conducted together, as part of a plan to
improve multi -modal mobility in Sebastian.
On an ongoing basis, review right -of -way width requirements for roadways to ensure that
there is adequate space for bicycle and pedestrian improvements, including greenways
where applicable.
Include policies in the Transportation and Intergovernmental Coordination Elements to
review all proposed road improvements in and near Sebastian to ensure that any
opportunities for advancement of the North County Greenways Master Plan have been
included.
Include policies to ensure that the land development regulations will ensure
interconnection of new development with any adjacent designated greenway.
If mobility fees or a similar concept (discussed at more length in Major Issue #1) are
instituted in Sebastian, consider redirecting a portion funding from roadways to bicycle
pedestrian facilities, including greenways.
Include a policy in the Parks and Recreation Element to consider the future use of
Recreation Impact Fees (RIF) to fund development of greenways.
Include a policy the Recreation and Open Space Element that to the extent feasible, all
parks located adjacent to a canal shall have an area suitable for launching a canoe,
kayak or similar small craft.
Revise the Intergovernmental Coordination Element to address implementation of the
North County Greenways Master Plan.
Include policies in the Future Land Use Element to review the land development
regulations to ensure that kayak rentals, bicycle rentals and similar uses associated with
eco- tourism are permitted and adequately regulated in the Riverfront Mixed -Use (RMU)
area.
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Major Issue #5: Annexation and Service Delivery: Annexation has been a contentious issue
in Sebastian's past, largely because of its association with growth and development of vacant
land on the City's municipal boundaries. But annexation is a complicated issue that is tied to a
myriad of other factors including economic development, fiscal resources, service delivery,
intergovernmental coordination and others. Analysis of this issue will include identifying potential
annexation opportunities and annexation strategies; as well as the impact of development in the
land adjacent to but outside of municipal boundaries and Interlocal agreements.
From the City's perspective, expansion of its municipal boundaries entails costs and benefits
that must be weighed carefully. Rationales for annexation include providing sufficient land for
growth and development of the city; recognition that a municipal government is the most logical
provider of general government or other services for existing or expected development;
improving a city's fiscal position; gaining regulatory control of land use and other matters near
the municipality; and others. Residents and property owners may favor being annexed because
they desire the services that this entails, such as police protection, etc., may prefer the City's
land development regulations either for their own property or their neighbors' or for other,
less tangible reasons. For both a city and for residents and property owners, annexation
involves trade -offs, including higher expenditures for service provision for municipalities, and
higher taxes and often more regulation for property owners. All of these factors are likely to be
influential as Sebastian continues to figure out its municipal boundaries through the Plan's 2025
timeframe.
As noted above, annexation policy and activities have implications for economic development,
the city's fiscal position, the efficiency and effectiveness of service delivery and
intergovernmental coordination. Both the City's Comprehensive Plan and the County's
Comprehensive Plan include objectives or policies directly addressing annexation. The City's
policies are as follows:
Future Land Use Element:
Policy 1- 1.2.2:
Agriculture for Annexed Lands. The City shall utilize the Agriculture
Land Use classification for future annexations of existing agricultural
lands until such a time that urban growth is contiguous and
agricultural activities are no longer economically sustaining.
Objective 1 -2.10: ANNEXATION STUDIES. The City of Sebastian acknowledges a
need to prevent urban sprawl and disjointed urban service delivery
systems. In addition, the City desires to develop a plan for managing
annexation of unincorporated enclaves as well as fringe areas
adjacent to the City, especially for potential industrial centers within
the incorporated area. Therefore, the City of Sebastian may require
an analysis on a case by case basis for areas considered for
annexation.
Policy 1- 2.10.1: Parameters of the Annexation Studies. A City of Sebastian
annexation study may include:
1. Review and evaluation of Indian River County land development
forecasts within the unincorporated urban area together with
supportive documentation.
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Intergovernmental Coordination Element:
2. Analysis of area to be annexed of unincorporated enclaves and
subareas within the unincorporated urban area, including:
Population and housing
Traffic circulation system
Water and wastewater service
Drainage and natural water basins
Impact of development on of state and federally listed
protected species.
3. Protect urban population and employment trends and estimate
land area required to accommodate projected residential and
nonresidential activities.
4. Fiscal impact analysis and determination of future capital
improvements to meet such basic services such as police
protection, utilities, code enforcement, building and zoning,
permitting and inspection services to meet City of Sebastian
standards.
5. Analysis and determination of impacts to municipal and County
services including police fire protection, utilities, permitting and
inspection, school capacity etc to meet standards outlined in
Interlocal agreements (including the Interlocal Boundary Services
Agreement between the County and the municipalities).
6. Analysis of current land uses to determine contribution to the
City's tax base.
Policy 1- 2.10.2: Annexation Strategy. The City shall develop an annexation strategy
for planning and managing development within the unincorporated
urban area, including annexation alternatives. The strategy shall
include but not be limited to:
Procedures for intergovernmental coordination of land use
policy governing development within unincorporated urban
areas (including isolated enclaves) which are logical targets for
incorporation into the City of Sebastian; and
Policies and or actions for developing efficient systems for: 1)
delivering municipal services; 2) achieving diversification of the
municipal tax base.
Policy 8- 1.1.3: The City shall pursue resolution of development and growth
management issues with impacts transcending the City's political
jurisdiction, by participating in the Indian River County Metropolitan
Planning Organization (MPO) Technical Advisory Committee. Issues
of regional and state significance shall be coordinated with the
regional or State agencies having jurisdictional authority. Issues to be
pursued include but are not limited to the following:
Impacts of development proposed in the Comprehensive Plan on
Indian River County, the region or the State.
Indian River County land development activities adjacent to the
City's corporate limits.
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OBJECTIVE 8 -1.3: INFRASTRUCTURE SYSTEMS AND LEVEL OF SERVICE
STANDARDS. The City will maintain the adopted concurrency
management program (refer to Objective 9 -1.5) that requires
specific issues surrounding level of service standards for existing
and proposed public facilities within the City and adjacent areas
be coordinated with all State, regional, or local agencies or private
entities having existing or proposed future responsibility for the
operation and maintenance of such facilities. This objective shall
be measured through the implementation of the following policies.
Policy 8- 1.3.1:
Indian River County Future Land Use Element:
Policy 13.2:
Policy 13.3:
City of Sebastian land development activities adjacent to the
unincorporated area of the County.
Potential annexation issues.
Proposed North County central water and wastewater systems.
Areawide drainage and stormwater management master plan,
proposed improvements, and implementing programs.
Solid waste disposal, especially improvements required in order to
comply with the 1988 Solid Waste Recovery Act.
Level of service standards for infrastructure system impacting the
City and adjacent unincorporated areas.
[policy has been abridged here to exclude bullets that do not
pertain directly to this major issue]
Coordinate Regional /Sub- Regional Infrastructure Issues. The
City shall work with various Indian River County Special
Committees, including the North County Water and Wastewater
District, the North County Fire District, the Joint Transportation
Committee, and other similar committees in addressing issues
surrounding regional or sub regional infrastructure systems.
Issues which shall be coordinated include, but shall not be limited
to, wastewater and potable water systems improvements within
the North County area; maintenance of the fire protection and
emergency medical service in the North County area;
improvements to several State Roads and County Roads; solid
waste and hazardous waste disposal; and plans for "district" or
"urban" parks in the North County area.
Relevant Indian River County Comprehensive Plan policies are as follows:
Indian River County, through coordination with municipalities
within the county, shall ensure that future annexation will not
create enclaves.
By 1999, the County shall encourage municipalities to identify
potential areas for annexation, develop criteria for annexation
decisions, and execute interlocal agreements with the County to
formalize these criteria. [The County's draft EAR -Based
Amendments would change the year in this policy to 2011]
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[Policies 13.4, 13.5 and 13.6 regarding elimination of enclaves are proposed for deletion
as part of the County's EAR -Based Amendments]
Proposed Policy 13.4: Indian River County shall work with municipalites in the County
to amend the proposed interlocal service boundary agreement
between the county and municipalities to address annexation
issues, maintenance of established level of service standards,
extra jurisdictional development impacts, upfront coordination on
land use amendments and rezonings and establishment of a
dispute resolution process.
According to GIS calculations, Sebastian has added approximately 575.5 acres to its and area
since 1995, the year reported in the last EAR. These annexations have been concentrated,
first, among small properties along the US -1 corridor, particularly in the northern part of
Sebastian and second, among several larger parcels in the southwest part of the City,
especially near CR -512 and CR- 510/90 Avenue. There have also been annexations of larger
interior parcels. During recent rapid growth years, annexations became a hot political issue in
Sebastian, largely as a proxy for the issue of land development on the City's fringe.
For over two years, the City has been in negotiations with Indian River County and the other
municipalities in the county enact an Interlocal Service Boundary Agreement (ISBA), primarily to
address the issue of annexation. Although the Town of Indian River Shores has withdrawn from
the process, the other municipalities are still working toward enactment. Prior to the past
decade, there was relatively little annexation activity in Indian River County. However, the City
Fellsmere, west of Sebastian, annexed nearly 25,000 acres of land between 2000 and 2008.
The City of Fellsmere has passed large future land use amendments that greatly increase
development potential, raising concerns for the impacts of such growth on other communities
and, for Sebastian, remaining opportunities for future expansions of the municipal boundary.
Fellsmere and DCA are currently in negotiations to reach a settlement agreement on the
proposed amendments. The ISBA would create "annexation reserve areas" for each
municipality in the County participating in the agreement, outside of which annexation would not
be allowed. It would also create a new committee made up of one elected official from each
participating government. This committee would review requests for annexations and land use
changes for annexed properties. Unanimous agreement of committee members would be
required to approve land use amendments resulting in substantive changes in density /height
allowances for properties outside for the County Urban Service Area (USA) and /or County
changes to the USA. However, this unanimous consent requirement would have exceptions
including most potential annexations in Sebastian's reserve area. See the map on the following
page for latest draft of municipal annexation reserve areas. Sebastian's proposed reserve area
includes all of that portion of the Indian River County mainland north of the City's boundaries
and east /south of the St. Sebastian River, large areas west of the City on CR -512, large areas
to the south, all of the US -1 corridor to the east of the current City boundaries on the mainland
and all existing unincorporated enclaves surrounded by Sebastian's jurisdiction. While there is
agreement between the prospective parties on most ISBA issues, final approval of the ISBA has
taken on a lower priority as growth pressures have slowed substantially and as Fellsmere
continues negotiations with DCA.
There are a number of annexation possibilities within the proposed annexation reserve area. To
the north of is the Roseland community, as well as mostly commercial properties on the US -1
corridor. Due to its proximity and the possibility of making service delivery more efficient,
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Roseland may be a logical annexation target. However, potential issues stand in the way. First,
annexing the entire community at once would be nearly impossible via voluntary annexation,
since each and every property owner must agree; second, it is not clear that Roseland residents
favor annexation; and third, without further study it is not clear that annexation would be a net
fiscal benefit to Sebastian, which would nullify the benefit from service delivery efficiency. At the
same time, pursuing annexation of the neighborhood in a piecemeal fashion would only serve to
further exacerbate service delivery inefficiencies. Those properties along the US -1 corridor offer
a different situation. By pursuing voluntary annexation of contiguous properties, the City has
been able to expand the City's boundaries in a logical fashion.
To the east of the City's current boundaries, surrounding the US -1 corridor to the south of the
Downtown, is a significant amount of area that remains unincorporated. There are several
compelling reasons why these properties should be a target of annexation. Functionally, they
are nearly a de facto part of the City today, and while they may not directly receive city services
as they would upon annexation, they certainly benefit by being next to a well -run city i.e. road
maintenance, police protection, nearby parks, the City's economic development efforts, etc. At
the same time, "squaring up" this boundary would improve efficiency and effectiveness in
service delivery. Law enforcement is an excellent example, as Indian River County Sheriff
deputies now must expend resources serving an area that could be more efficiently served by
the City's police department, and which except for the existing, somewhat arbitrary city
boundary are essentially part of the Sebastian community. This same logic applies to enclaves,
which are basically unincorporated islands that are surrounded by land within the city. On the
other hand, property owners in these areas may wish to avoid the additional taxes that would
come with annexation.
To the west of the City, primarily in the CR -512 corridor, is a significant amount of vacant land in
the City's proposed reserve area. It should be anticipated that these areas will eventually be
annexed. This area is important for a number of reasons, including being a gateway to the
community and the excellent access afforded by the 1 -95 interchange. Additionally, this area is
home to the North County Transit Hub where sever GoLine bus routes meet North County
Regional Park, and is near the intersection of several future greenways, including one along the
CR -512 corridor that is a high priority for greenways implementation. These factors make the
area or part of it appropriate for consideration as a future "node" as discussed in Major Issue
#1, an area of enhanced alternative transportation amenities with the possibility of future higher
densities /intensities. Such a form of development is unlikely to take place without proactive
planning to set out appropriate parameters such as mixed -use guidelines and urban design
provisions.
Finally, to the south of the City's boundaries is a substantial amount of land, as can be seen on
the latest ISBA Map, most of which is vacant or in agricultural use. If this area is eventually
developed with other than rural uses, it should become part of Sebastian. However, there is
enough land in this area to accommodate a substantial amount of development, likely much
more than would be needed over the Comprehensive Plan's 2025 horizon. A more immediate
concern is the CR -510 corridor, and the area between the corridor and the City's current
boundaries. Existing County land use designations in this corridor include agriculture /rural
density residential, as well as more suburban density residential further east, nearer the Indian
River Lagoon. The City of Sebastian has a great interest in this corridor whether it is within the
City's boundaries or not. Any development there will have large impacts positive, negative or
both to the City and its residents, and will affect the City's image. Additionally, the City is
seeking adequate commercial and industrial lands to accommodate its economic development
needs, and many have pointed to the 510 corridor as a place to meet those needs. At the same
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time, piecemeal annexation poses a number of problems, not only for service delivery but also
for the logical and orderly growth and development of the corridor. Some property owners may
choose to request annexation or to specifically not request annexation because they prefer
either the municipal or county regulatory regime to control development of their property. The
result of adjacent properties along the same corridor being governed by two different sets of
development regulations is more likely to result in a lack of coordination leading to poor urban
design and a corridor that does not function as well as it should. There are a number of tools
that could deal with this issue, including joint planning and development of consistent
regulations for the corridor, as well as encouraging blocks of property owners to request
annexation of larger contiguous areas, as opposed to piecemeal annexation.
As discussed earlier, the Comprehensive Plan includes a number of provisions that relate to
annexation. In general, the objectives and policies are clear and thorough and provide a
relevant guide for the City's general approach to annexation. However, the analysis presented
in the EAR and the progress of the proposed ISBA reveal ways that the City could amend the
Plan to incorporate more focused policies addressing the City's specific annexation issues. This
is consistent with existing FLUE Policy 1- 2.10.2 (Annexation Strategy). It is also important to
coordinate and where possible reach consensus with Indian River County on annexation issues,
and the recommendations that follow also respond to the policies of the County Plan as cited
above. The City continues to pursue enactment of the ISBA, which would provide a logical
framework for annexation decisions in the County, binding participants for the next 20 years.
However, in is unsure that that ISBA enactment will be accomplished. It is important for the City
to continue to carefully pursue a rational annexation policy that is consistent with possible
enactment of the ISBA, but is not dependent upon it.
Recommendations
The Sebastian Comprehensive Plan should be amended to include provisions to:
Pursue joint planning arrangements with Indian River County to plan for future growth
and development of the CR -510 Corridor south of the City, and the CR -512 corridor west
of the St. Sebastian River. Joint planning arrangements could include such things as
joint corridor planning, adoption of identical land development regulations for the
corridor.
Require property owners requesting voluntary annexation to pay for an annexation study
complying with FLUE Policy 1- 2.10 -.1, unless an annexation study covering the same
area has previously been completed. Such a study should be completed by a
competent, independent third party acceptable to both the City and property owner(s).
Because economies of scale are assumed in the preparation of such annexation studies,
this requirement should serve as an incentive for property owners to apply jointly for
annexation.
Require a future and use map amendment application to be submitted concurrently with
annexation requests over a land area size to be determined. This will allow both the City
and the County to concurrently review proposed uses for property to be annexed. For
voluntary annexation requests involving property that is already developed and where
use and character are already established, the City should provide a specifically
designed process designed to be Tess burdensome and more affordable for property
owners.
Pursue establishment of formal processes with the County that would provide the City
the opportunity to review and comment on all Comprehensive Plan, zoning and
development applications for land near the City. Such processes may be included in
the ISBA if it is eventually adopted.
City of Sebastian 2010 EAR— DRAFT 6 -15 -2010 5113A-nAN
70
HO tit CH Pftl.: 41 l±l alI,
For enclaves and those areas east of the City's current boundaries and south of the
Downtown area, work with property owners and the County to encourage voluntary
annexations, as well as to consider the use of annexation by interlocal agreement for
larger areas.
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
71
SEBASTIAN
l
-r.
VI. Consistency with State and Regional Requirements
S. 163.3191, F.S. requires that the EAR evaluate whether changes in Chapter 163, Part II, F.S.,
Rule 9J -5, F.A.C., the State Comprehensive Plan or the applicable strategic regional policy plan
(in this case the Treasure Coast Strategic Regional Policy Plan) require changes in the City's
Comprehensive Plan. What follows is an evaluation of how changes in these statutes, rules and
plans, since the City's last EAR in 1197, that are applicable to the City of Sebastian, have been
addressed or, as necessary, need to be addressed through the EAR -Based Amendments.
City of Sebastian 2010 EAR DRAFT 6 -15 -2010
72
SETLAN
HOt1LJ1 AND
Amendment Needed
By Element
1986: [Ch. 86 -191, SS.7 12, 18 31, Laws of Florida)
1992: [Ch. 92 -129, Laws of Florida, and Ch. 92 -279, S. 77, Laws of Floridaj
1993: [Ch. 93 -206, Laws of Florida (aka the ELMS bill) and Ch. 93 -285, S. 12, Laws of Florida)
Addressed
(where /how)
Throughout the Future Land Use
Element
See Consistency with SCP section
CIE Policy 1.2.1 and in each of the
functional elements.
CIE Objective 1.6 and implementing
policies.
Future Land Use Element, Coastal
Management Element
Future Land Use Element
FLUE Objective 1 -2.9, Policies 1-
2.2.2, 1 -2.2.3 and 1 -2.9.1 1 -2.9.7
Throughout Plan
Housing Element
Chapter 163, F.S.
Citations
163.3177(6)(a)
163.3177(10)
CO
CO
CD
163.3161(9)
163.3177(6)(f)1.
Changes to Chapter 163, F.S.
A Future Land Use Element must have "goals, policies, and
measurable objectives," rather than "measurable goals,
objectives, and policies."
Required each local government to review and address all State
Comprehensive Plan provisions relevant to that jurisdiction.
Recognized that local governments are charged with setting level
of- service standards.
Public facilities and services needed to support development
shall be available concurrent with the impacts of development.
(11)(a): Recognized the need for innovative planning and
development strategies to address the anticipated continued
urbanization of the coast and other environmentally sensitive
areas.
(11)(b): Stated that plans should allow land use efficiencies
within existing urban areas, and should also allow for the
conversion of rural lands to other uses.
(11)(c): Provided that plans and land development regulations
(LDRs) should maximize the use of existing facilities and
services through redevelopment, urban infill, and other
strate• ies for urban revitalization.
Amended the intent section to include that constitutionally
_protected property rights must be respected.
Amended the requirements for the housing element by:
Having the element apply to the jurisdiction, rather than
the area.
Including very-low income housing in the types of housing
to be considered.
Provided guidance that the creation or preservation of
affordable housing should minimize the need for additional
Amendment Needed
By Element
Addressed
(where /how)
c
o
(a
c
o
o
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Chapter 163, F.S.
Citations
cfl
Changes to Chapter 163, F.S.
local services and avoid the concentration of affordable
housing units only in specific areas.
SIC�.IIII Il;dl IL iiiipeiuib 011 SL"d LC 01 Ily.lurldl ldUUnICS.
A process for mitigating extrajurisdictional impacts in the
jurisdiction in which they occur.
A dispute resolution process.
A process for modification of DRI development orders without
loss of recognized development rights.
Procedures to identify and implement joint planning areas.
Recognition of campus master plans.
Requiring each county, all municipalities within that county,
the school board, and other service providers to enter into
formal agreements, and include in their plans, joint processes
for collaborative planning and decision making.
Created a new section for concurrency which:
Provides concurrency on a statewide basis only for roads,
sewers, solid waste, drainage, potable water, parks and
recreation, and mass transit; a local government can extend
concurrency to public schools if it first conducts a study to
determine how the requirement would be met.
Set timing standards for concurrency of:
For sewer, solid waste, drainage and potable water
facilities, in place no later than the issuance of the
certificate of occupancy.
For parks and recreation facilities, no later than 1 year after
issuance of certificate of occupancy.
For transportation facilities, in place or under actual
construction no later than 3 years after issuance of a
certificate of occupancy.
Allows development that does not meet concurrency if the
local government has failed to implement the Capital
Improvements Element, and the develoser makes a bindin•
Amendment Needed
By Element
1999: [Ch. 99 -251, ss. 65 -6, and 90; Ch. 99 -378, ss. 1, 3 -5, and 8 -9, Laws of Florida]
2002: [Ch. 2002 -296, ss. 1 11, Laws of Florida]
Public Facilities
Element; Capital
Improvements
Element; possibly
others.
Public Facilities
Element
The regional water
supply plan (RWSP)
should be reviewed
during preparation of
the EAR -Based
Amendments to
determine whether the
Conservation Element
needs be updated to
support the RWSP.
Addressed
(where /how)
Transportation Element; Capital
Improvements Element
Transportation Element
Intergovernmental Coordination
Element
The required interlocal agreement
has been executed.
Intergovernmental Coordination
Element
Chapter 163, F.S.
Citations
(e)(t-)096£'£96 1
163.3180(1)(b)
163.3177(4)(a)
163.3177(6)(c)
cn
cei
163.3177(6)(h)
163.3177(6)(h)4.
163.3177(6)(h)6.,
7., &8.
Changes to Chapter 163, F.S.
Made transportation facilities subject to concurrency.
Required use of professionally accepted techniques for
measuring level of service for cars, trucks, transit, bikes and
pedestrians.
Required coordination of local comprehensive plan with the
regional water supply plan.
Required that by adoption of the EAR, the sanitary sewer, solid
waste, drainage, potable water and natural groundwater aquifer
recharge element consider the regional water supply plan and
include a 10 -year work plan to build the identified water supply
facilities.
Required consideration of the regional water supply plan in the
preparation of the conservation element.
Required that the intergovernmental coordination element
(ICE) include relationships, principles and guidelines to be used in
coordinating comp plan with regional water supply plans.
Required the local governments adopting a public educational
facilities element execute an inter -local agreement with the
district school board, the county, and non exempting
municipalities.
Required that counties larger than 100,000 population and their
municipalities submit an inter -local service delivery agreements
(existing and proposed, deficits or duplication in the provisions of
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Coastal Management
Element
Land Development
Regulations
Addressed
(where /how)
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Interlocal agreement entered into
Public School Facilities Element;
Capital Improvements Element
Chapter 163, F.S.
Citations
LLL4£'£9L.
163.3178
163.3180
Changes to Chapter 163, F.S.
(6)(h)1.: The intergovernmental coordination element must
address coordination with regional water supply authorities.
(2): Required the public schools interlocal agreement (if
applicable) to address requirements for school concurrency. The
opt -out provision at the end of Subsection (2) is deleted.
(2)(g): Expands requirement of coastal element to include
strategies that will be used to preserve recreational and
commercial working waterfronts, as defined in s.342.07, F.S.
(1)(a): Added "schools" as a required concurrency item.
2)(a): Required consultation with water supplier prior to issuing
building permit to ensure "adequate water supplies" to serve new
development will be available by the date of issuance of a
certificate of occupancy.
Amendment Needed
By Element
Iq«
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(where /how)
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Citations
Changes to Chapter 163, F.S.
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Amendment Needed
By Element
2006 [Ch. 2006 -68, Ch. 2006 -69, Ch. 2006 -220, Ch. 2006 -252, Ch. 2006 -255, Ch. 2006 -268, Laws of Florida]
Coastal Management
Element
Coastal Management
Element;
Transportation
Element
Coastal Management
Element;
Transportation
Element
Coastal Management
Element; Future Land
Use Map
a)
D
C
m
J C
a) a)
3 N
LL W
Addressed
(where /how)
Chapter 163, F.S.
Citations
163.3178(2)(h)
163.3178(9)(a)
[New]
163.3178(9)(b)
[New]
163.3178(2)(c)
co
CD
Changes to Chapter 163, F.S.
Changes the definition of the Coastal High Hazard Area (CHHA)
to be the area below the elevation of the category 1 storm surge
line as established by the SLOSH model. Ch. 2006 -68, LOF.
Adds a new section allowing a local government to comply with the
requirement that its comprehensive plan direct population
concentrations away from the CHHA and maintains or reduces
hurricane evacuation times by maintaining an adopted LOS
Standard for out -of- county hurricane evacuation for a category 5
storm, by maintaining a 12 -hour hurricane evacuation time or by
providing mitigation that satisfies these two requirements. Ch.
2006 -68, LOF.
Adds a new section establishing a level of service for out -of-
county hurricane evacuation of no greater than 16 hours for a
category 5 storm for any local government that wishes to follow the
process in s.163.3178(9)(a) but has not established such a level of
service by July 1, 2008. Ch. 2006 -68, LOF.
Requires local governments to amend their Future Land Use Map
and coastal management element to include the new definition of
the CHHA, and to depict the CHHA on the FLUM by July 1, 2008.
Ch. 2006 -68, LOF.
local government has not established such standards; establishes
procedures for the review of applications for the location of a new
substation; allows local governments to enact reasonable setback
and landscape buffer standards for substations. Ch. 2006 -268,
LOF.
Amendment Needed
By Element
2007 [Ch. 2007 -196, Ch. 2007 -198, Ch. 2007 -204, Laws of Florida)
Public School
Facilities Element
2008 [Ch. 2008 -191 and Ch. 2008 -227, Laws of Florida)
Conservation Element
Future Land Use Map
Housing Element
Addressed
(where /how)
Capital Improvements Element
The City is current with required
annual CIE updates.
Housing Element
FLUE Objective 1 -2.9 and
implementing policies
FLUE Policies 1 -4.5.2 and 1 -4.5.3
FLUE Policies 1 -4.2.2 through 1-
4.5.7
TE Policies 1.2.1, 1.3.7, 1.5.6,
1.5.8, 1.6.1 through 1.6.15 and
Objective 1.6
Chapter 163, F.S.
Citations
CO
CO
N
163.3180
(e)(9)LL 6£'£91.
163.3177(6)(a)
163.3177(6)(a)
163.3177(6)(d)
163.3177(6)(d)
pue
U' 6(4)(9)LL 6£'£9 6
163.3177(6)(j)
Changes to Chapter 163, F.S.
(2) Clarifies that financial feasibility is determined using a five
year period (except in the case of long -term transportation or
school concurrency management, in which case a 10 or 15 -year
period applies). Ch. 2007 -204, LOF.
(3)(b)1. Requires an annual update to the Five -Year Schedule of
Capital Improvements to be submitted by December 1, 2008 and
yearly thereafter. If this date is missed, no amendments are
allowed until the update is adopted. Ch. 2007 -204, LOF.
(6)(f)1.d. Revises the housing element requirements to ensure
adequate sites for affordable workforce housing within certain
counties. Ch. 2007 -198, LOF.
(13)(e)4. A development precluded from commencing because of
school concurrency may nevertheless commence if certain
conditions are met. Ch. 2007 -204, LOF.
The future land use plan must discourage urban sprawl. Ch. 2008-
191, LOF.
The future land use plan must be based upon energy- efficient land
use patterns accounting for existing and future energy electric
power generation and transmission systems. Ch. 2008 -191, LOF.
The future land use plan must be based upon greenhouse gas
reduction strategies. Ch. 2008 -191, LOF.
The conservation element must include factors that affect energy
conservation. Ch. 2008 -191, LOF.
The future land use map series must depict energy conservation.
Ch. 2008 -191, LOF.
The housing element must include standards, plans and principles
to be followed in energy efficiency in the design and construction
of new housing and in the use of renewable energy resources.
Ch. 2008 -191, LOF.
Local governments within an MPO area must revise their
transportation element to include strategies to reduce greenhouse
gas emissions. Ch. 2008 -191, LOF.
Amendment Needed
By Element
November 22, 1989
17666 `CZ 4
Coastal Management Element
Intergovernmental Coordination
Element. These should be
updated to acknowledge the
marina siting criteria found in the
Indian River County Manatee
Protection Plan.
Addressed
(where /how)
Capital Improvements Element
Capital Improvements Element
Capital Improvements Element
General Monitoring and Review
Criteria (Chapter of Comprehensive
Plan)
Capital Improvements Element;
Transportation Element
9J -5, F.A.C.
Citations
SS00'S 6
91-0
9J- 5.016(4)(a)2.
9- 5.005(1)(c)
9- 5.005(7)
in
Changes to Rule 9J -5, F.A.C.
Required local governments to adopt a concurrency
management system in their comprehensive plans and
established requirements for such systems.
Required the capital improvement element to include
requirements to ensure an adequate concurrency
management system is implemented.
Clarified requirements relating to projected revenue
sources that are contingent upon ratification by public
referendum.
Required local comprehensive plans to include a
countywide marina siting plan for participating local
governments in the coastal area and intergovernmental
coordination processes.
Revised monitoring and evaluation requirements to
include a description of the public participation process and
components of the evaluation and appraisal process. Note:
Revised February 25, 2001.
Revised requirements for the concurrency management
system to include provisions regarding level of service
standards, and minimum requirements for
concurrency, and authorized local governments to
incorporate within their concurrency management system
optional long term concurrency management systems,
transportation concurrency management areas,
transportation concurrency exception areas;
concurrency exceptions for projects that promote
public transportation, and provisions for private
contributions to local government capital improvement
plannin.
Amendment Needed
By Element
Coastal Management Element
data and analysis should be
updated as part of the EAR -Based
amendments to consider the
marina siting criteria found in the
Indian River County Manatee
Protection Plan.
Coastal Management Element
should be updated to
acknowledge the marina siting
criteria found in the Indian River
County Manatee Protection Plan,
as well as include policies to
incorporate any recommendations
from an interagency hazard
mitigation report into the
Comprehensive Plan.
Addressed
(where /how)
FLUE Objective 1 -4.1 (hazard
mitigation report- related)
Housing Element
Housing Element
9J -5, F.A.C.
Citations
9J- 5.006(3)(b)
9J- 5.010(1) and
(2)
(£)01.0
9J- 5.012(2)
CD
Changes to Rule 9J -5, F.A.C.
Required the Future Land Use Element to include
objectives to encourage elimination or reduction of uses
that are inconsistent with an interagency hazard
mitigation report.
Required the Housing Element inventory and analysis to:
Use data from the affordable housing needs
assessment;
Address housing needs of existing and future
residents;
Avoid the concentration of affordable housing; and
Address the needs of very-low income families as well as
low and moderate income families.
Required Housing Element objectives to address:
Housing needs of current and future residents;
Sites and distribution of housing for very-low
income and low- income families; and
Use of job training, job creation and economic solutions to
address affordable housing concerns.
Required Coastal Management Element inventories and
analyses to be coordinated with the countywide marina
siting plan.
Required Coastal Management Element policies to:
Incorporate recommendations from interagency
hazard mitigation reports;
Address the relocation, mitigation or replacement
of infrastructure within the coastal high- hazard
area;
Include criteria consistent with the countywide
marina siting plan; and
Include a procedure to resolve inconsistencies between the
local comprehensive plan and the deepwater port master
plan.
Amendment Needed
By Element
Coastal Management Element
should be updated to
acknowledge the marina siting
criteria found in the Indian River
County Manatee Protection Plan.
May 18, 1994
The EAR -Based Amendments
should include updated existing
and future conditions maps to
show the updated CHHA
boundaries. There are no potable
waterwells or wellhead protection
areas within Sebastian's
jurisdiction.
Addressed
(where /how)
Transportation Element
Future Land Use Element, Future
Land Use Map
PFE Objective 4 -4.1 and
implementing policies
Future Land Use Element
tuawei 6uisnoH
9J -5, F.A.C.
Citations
9J- 5.012(4)
61.O f6
9J- 5.005(1)
9J- 5.006(3)
o
o
9J -5.010
Changes to Rule 9J -5, F.A.C.
Required affected local governments to incorporate the
marina siting plan in the Coastal Management Element.
Required local governments having all or part of their
jurisdiction within the urbanized area of a Metropolitan
Planning Organization to prepare and adopt a
transportation element which replaces the traffic
circulation element, the mass transit element, and the
ports, aviation and related facilities element and
established requirements for the transportation element.
Revised comprehensive plan content requirements to
clarify that the future land use map or map series must be
included in the adopted comprehensive plan.
Required goals, objectives and policies to establish
standards for the use of land and guidelines for land
development regulations.
Required policies of the Future Land Use Element to
address protection of potable water wellfields by
designating appropriate activities and land uses within
wellhead protection areas.
Required public potable waterwells, wellhead protection
areas, and coastal high hazard areas to be shown on the
future land use map and provided that educational uses,
public buildings and grounds and other public facilities
may be shown as one land use category. Provided that if
mixed use categories are used, policies must specify
types of land uses allowed, the percentage distribution
among the mix of uses or other objective measurement,
and the density and intensity of each use.
Required the Housing Element to address housing for
moderate income, low income, and very low income
households, group homes, foster care facilities, and
households with special housing needs, including rural and
farmworker housing.
Amendment Needed
By Element
Housing Element
Future Land Use Map
This data and analysis described
should be updated in the Public
Facilities Element as part of the
EAR -Based amendments.
Although these issues are
addressed in the Conservation
Element, this analysis should be
updated as part of the EAR -Based
amendments.
Addressed
(where /how)
Housing Element (Data, Inventory
and Analysis, updated April 2009)
Future Land Use Map; HE Policies
1.1.5 and 1.1.7
HE Policy 1.1.5
PFE Policy 4 -1.1.1
Conservation Element
CONS Policies 6- 1.2.1, 6- 1.2.5, 6-
1.2.7 and Objective 6 -1.4 and
implementing policies.
9J -5, F.A.C.
Citations
(2)01.0 "S C6
9J- 5.010(3)(b)
9J- 5.010(3)(c)
(l-) i 60 "9 r6
9J- 5.011(2)
(1.)£ 1,0
C
as
Changes to Rule 9J -5, F.A.C.
Required the Housing Element analysis to address the
existing housing delivery system.
Required objectives of the Housing Element to address
adequate sites for mobile and manufactured homes.
Required policies of the Housing Element to:
S Include specific programs and actions to streamline
the permitting process and minimize costs and
delays for housing;
S Establish principles and criteria guiding the location
of manufactured homes;
S Designate sufficient sites at sufficient densities to
accommodate affordable housing.
Required the data and analysis of the Sanitary Sewer, Solid
Waste, Stormwater Management, Potable Water and
Natural Groundwater Aquifer Recharge Element to identify
major natural drainage features and natural
groundwater aquifer recharge areas, including areas
identified by the water management district as prime or
high groundwater recharge areas.
I
Required the policies of the Sanitary Sewer, Solid Waste,
Stormwater Management, Potable Water and Natural
Groundwater Aquifer Recharge Element to establish water
quality standards for stormwater recharge.
Required the Conservation Element to identify and analyze
groundwater and important fish or shellfish areas.
Required policies of the conservation element to address
land uses known to affect adversely the quality and quantity
of water sources, including natural groundwater recharge
areas, well head protection areas and surface waters used
as a source of public water supply, and the protection and
conservation of wetlands.
II
C. State Comprehensive Plan
The following lists the changes to the State Comprehensive Plan since the City's last EAR was
completed in 1997. Each listed change is following by comment regarding its applicability to
Sebastian and whether any change to the City's Comprehensive Plan is recommended.
1) In 1999, Goal (17), the Downtown Revitalization goal, was renamed the Urban and
Downtown Revitalization goal. In addition, nine (9) new policies were added to the goal. These
changes are show below in strike through and underline format (see Section 6 of Chapter 99-
378, Laws of Florida):
(17) URBAN AND DOWNTOWN REVITALIZATION.
(a) Goal. —In recognition of the importance of Florida's vital urban centers and of the
need to develop and redevelop developing and redeveloping downtowns to the state's
ability to use existing infrastructure and to accommodate growth in an orderly, efficient,
and environmentally acceptable manner, Florida shall encourage the centralization of
commercial, governmental, retail, residential, and cultural activities within downtown
areas.
(b) Policies.—
4. Promote and encourage communities to engage in a redesign step to include public
participation of members of the community in envisioning redevelopment goals and
design of the community core before redevelopment.
Comment: The Community Redevelopment Plan for the City's downtown core was
conceived and written with substantial public participation, as will be the case with any
future Redevelopment Plan updates or any other redevelopment plans. However,
consistent with this new policy in the State Comprehensive Plan, a policy should be
added to the City's Future Land Use Element, under Objective 1 -2.9, stating that any
future redevelopment planning or updates to existing redevelopment plans will include
strong design components with public participation as a vital part of the planning
process.
5. Ensure that local governments have adequate flexibility to determine and address
their urban priorities within the state urban policy.
Comment: Not applicable to Sebastian.
6. Enhance the linkages between land use, water use, and transportation planning in
state, regional, and local plans for current and future designated urban areas.
Comment: The linkages between land use planning and water use planning have been
increased through implementation of requirements set forth in 2005's Senate Bill 360. A
number of other recommendations throughout this EAR, particularly those associated
with Major Issue #1, thoroughly address increased linkages between land use and
transportation planning.
7. Develop concurrency requirements that do not compromise public health and safety
for urban areas that promote redevelopment efforts.
Comment: Sebastian's Comprehensive Plan complies with this policy.
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8. Promote processes for the state, general purpose local governments, school boards,
and local community colleges to coordinate and cooperate regarding educational
facilities in urban areas, including planning functions, the development of joint facilities,
and the reuse of existing buildings.
Comment: This policy would appear to apply primarily to state government. However,
the Intergovernmental Coordination Element of the City's Comprehensive Plan includes
a number of provisions for coordination between the City and various other public
entities, including educational providers.
9. Encourage the development of mass transit systems for urban centers, including
multimodal transportation feeder systems, as a priority of local, metropolitan, regional,
and state transportation planning.
Comment: Several recommendations in this EAR address ways to promote transit by
encouraging appropriate development in terms of density, mix of uses and design
near transit stops, as well as the further development of other alternative modes of
transportation. This is the primary way that Sebastian may affect development of transit
systems, as it is not a primary provider of mass transit service.
10. Locate appropriate public facilities within urban centers to demonstrate public
commitment to the centers and to encourage private sector development.
Comment: A number of public facilities and other public investments have been made in
the City's CRA area notably development and improvement of civic uses such as
parks that demonstrate the City's commitment to its urban center.
11. Integrate state programs that have been developed to promote economic
development and neighborhood revitalization through incentives to promote the
development of designated urban infill areas.
Comment: The City seeks all feasible opportunities to integrate appropriate state
programs to promote economic development and neighborhood revitalization to promote
development of urban infill areas.
12. Promote infill development and redevelopment as an important mechanism to
revitalize and sustain urban centers.
Comment: The City of Sebastian currently has adequate processes in place to promote
urban infill and redevelopment, including the CRA.
8) In 2002, Goal (1) Education and its associated policies were deleted (see Section 1056 of
Chapter 2002 -387, Laws of Florida. As a result, all the remaining goals were renumbered.
None of these changes relate to land use or growth management.
Comment: Not applicable to the City of Sebastian's Comprehensive Plan.
9) In 2008, the following changes were made (see Section 5 of Chapter. 2008 -227, Laws of
Florida):
a) A new policy was added under Goal (10) Air Quality:
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6. Encourage the development of low- carbon emittinq electric power plants.
b) Goal 11 Energy was revised as follows:
Florida shall reduce its energy requirements through enhanced conservation and
efficiency measures in all end -use sectors and shall reduce atmospheric carbon dioxide
lam, while at the same time promoting an increase use of renewable energy resources
and low- carbon emitting electric power plants.
c) A new policy was added under Goal (15) Land Use:
8. Provide for the siting of low- carbon emitting electric power plants, including nuclear
power plants, to meet the state's determined need for electric power generation.
Comment: The City should amend the Intergovernmental Coordination Element to
include a policy that the City will work in partnership with electric power generators and
providers, other local governments including Indian River County and other appropriate
stakeholders to site low- carbon emitting electric power plants as such a need and
demand may arise, and ensuring that any such siting does not diminish quality of life for
Sebastian residents or hamper the City's economic development efforts.
D. Treasure Coast Strategic Regional Policy Plan
The Treasure Coast Strategic Regional Policy Plan has not been amended since the City's last
EAR was completed in 1997. Thus, there are no relevant changes to analyze.
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VII. Other Statutory Requirements
Coordination of the Comprehensive Plan with Public School Facilities
s. 163.3191(2)(k), F.S. requires that the EAR address coordination of the comprehensive
plan with existing public schools and those identified in the applicable educational facilities plan
adopted pursuant to s. 1013.35. The assessment shall address, where relevant, the success or
failure of the coordination of the future land use map and associated planned residential
development with public schools and their capacities, as well as the joint decisionmaking
processes engaged in by the local government and the school board in regard to establishing
appropriate population projections and the planning and siting of public school facilities."
Public schools in Sebastian have been successfully and compatibly integrated into their
neighborhoods. Although there are schools over capacity (see LOS Analysis), this is
anticipated to be remedied over time by the School District's capital plan and the ongoing
implementation of school concurrency, as well as through continued coordination with the
School District in planning new residential development.
In terms of coordination of school siting, the Intergovernmental Coordination Element does state
where the land development regulations shall allow public schools. However, it does not
directly address coordination between the City and the School District on school siting
decisions. While Public School Facilities Element Policy 1.7.6 discusses the method for student
enrollment projections which are of course closely related to population projections the
Comprehensive Plan does not directly address coordinating population projections with the
School District. The City should consider approaching the County, other municipalities and the
School District in order to better coordinate population projections.
Water Needs
s. 163.3191(2)(I), F.S. requires that local governments evaluate in the EAR "The extent to which
the local government has been successful in identifying alternative water supply projects and
traditional water supply projects, including conservation and reuse, necessary to meet the water
needs identified in s. 373.0361(2)(a) within the local government's jurisdiction. The report must
evaluate the degree to which the local government has implemented the work plan for building
public, private, and regional water supply facilities, including development of alternative water
supplies, identified in the element as necessary to serve existing and new development."
The City of Sebastian is not involved in gathering, storing, treating or distributing potable water
supplies. Rather, these services are provided by Indian River County. However, the City's
Conservation Element should be updated to include specific measures to reduce per capita
potable water use in the City of Sebastian.
CHHA Property Rights Evaluation
s. 163.3191(2)(m), F.S. requires an EAR for any jurisdiction at least partly within a Coastal High
Hazard Area (CHHA) to evaluate whether any past reduction in land use density impairs the
property rights of current residents when redevelopment occurs, including, but not limited to,
redevelopment following a natural disaster. The property rights of current residents shall be
balanced with public safety considerations. The local government must identify strategies to
address redevelopment feasibility and the property rights of affected residents..."
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The CHHA is defined by s. 163.3178(2)(h), F.S. as the area below the elevation of the category
1 storm surge line as established by the SLOSH model. Very little of Sebastian's jurisdiction
falls within this area (a map of storm surge areas in Indian River County can be viewed on the
County's Emergency Management Division website at
http: /www.irces.com/ Emergency_ Management _Division /IndianRiverSurge.pdf). In any case,
properties within these areas built within allowable densities, and the City has not lowered
allowable densities in these areas.
Common Methodology for Measuring Impacts on Transportation Facilities
s. 163.3191(2)(p), F.S. requires that the EAR include "An assessment of the extent to which
changes are needed to develop a common methodology for measuring impacts on
transportation facilities for the purpose of implementing its concurrency management system in
coordination with the municipalities and counties..."
Given that the passage of SB 360 in 2009 made the City of Sebastian a Transportation
Concurrency Exception Area (TCEA), and the City therefore is no longer required by the state to
have a transportation concurrency management system (CMS), it is unclear whether this
requirement is applicable to Sebastian. Nonetheless, the City uses the same CMS as Indian
River County, and as impacts in the City and the County are measured the same way, they are
coordinated.
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tiOsit I'llli iM1 ISLi \o
Number
Recommendation
Page
Reference
Future Land Use Element (FLUE)
FLUE -1
Ensure that proposed future land uses are based upon the
availability of water supplies.
77
FLUE -2
Amend the existing conditions maps and Future Land Use
Map or future conditions maps to depict the Coastal High
Hazard Area per the definition in s. 163.3178(2)(h), F.S.
80
85
FLUE -3
Introduce policies to address siting of electric distribution
substations and allow such substations in all land use
categories except those related to preservation,
conservation or historic preservation.
80
FLUE -4
Amend the future conditions map series to depict energy
conservation, such as natural areas, greenways, wetlands,
parks, forests, treed roadway corridors, and similar natural
and environmental resources that reduce energy demand.
81
FLUE -5
Duplicate TE Policy 1.3.8 in the Future Land Use Element.
82
FLUE -6
Ensure that sufficient sites are designated at sufficient
densities to accommodate needed affordable housing per
the Housing Element.
86
FLUE -7
Add a policy under Objective 1 -2.9, stating that any future
redevelopment planning or updates to existing
redevelopment plans will include strong design components
with public participation as a vital part of the planning
process.
90
FLUE -8
Amend the Intergovernmental Coordination Element to
include a policy that the City will work in partnership with
electric power generators and providers, other local
governments including Indian River County and other
appropriate stakeholders to site low- carbon emitting electric
power plants as such a need and demand may arise, and
ensuring that any such siting does not diminish quality of
life for Sebastian residents or hamper the City's economic
development efforts.
92
FLUE -9
Add a policy to ensure that the City's land development
regulations will allow for eco- tourism related uses in
appropriate locations and provide suitable regulations for
those uses.
45
FLUE -10
Encourage the further development of housing opportunities
in the Riverfront area.
45
FLUE -11
Add provisions to ensure that upon annexation to the City
of Sebastian, lands currently to the south of the City will be
subject to the following regulatory provisions:
o Allowance for the optional use of conservation
subdivisions or other similar provisions allowing
clustering of development and preservation of the
remainder for continued use as agriculture or
51
VIII. Summary of Recommendations
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open space.
o Application of a zoning overlay on the CR -510
corridor similar to that which currently exists
along the CR -512 corridor within the City.
FLUE -12
Add a policy to ensure that the land development
regulations will ensure interconnection of new development
with any adjacent designated greenway.
62
FLUE -13
Add policies to review the land development regulations to
ensure that kayak rentals, bicycle rentals and similar uses
associated with eco- tourism are permitted and adequately
regulated in the Riverfront Mixed -Use (RMU) area.
62
FLUE -14
For enclaves and those areas east of the City's current
boundaries and south of the Downtown area, work with
property owners and the County to encourage voluntary
annexations, as well as to consider the use of annexation by
interlocal agreement for larger areas.
71
FLUE -15
Add provisions to require a future land use map amendment
application to be submitted concurrently with annexation
requests over a land area size to be determined. This will
allow both the City and the County to concurrently review
proposed uses for property to be annexed. For voluntary
annexation requests involving property that is already
developed and where use and character are already
established, the City should provide a specifically designed
process to be Tess burdensome and more affordable for
property owners.
70
FLUE -16
Require property owners requesting voluntary annexation to
pay for an annexation study complying with FLUE Policy 1-
2.10-.1, unless an annexation study covering the same area
has previously been completed. Such a study should be
completed by a competent, independent third party
acceptable to both the City and property owner(s). Because
economies of scale are assumed in the preparation of such
annexation studies, this requirement should serve as an
incentive for property owners to apply jointly for annexation.
70
FLUE -17
Consider the potential for employment generating
commercial /industrial uses in the CR -510 corridor south of
the City. Seek to undertake joint planning activities with the
County consistent with recommendations of Major Issue #5.
As part of these joint planning efforts, implement the
greenways development and alternative transportation
recommendations of Major Issues #1 and #4.
45
Transportation Element (TE)
TE -1
Ensure that the hurricane evacuation requirements of Rule
9J -5 are complied with, including consideration of the
methods allowed by s. 163.3178(9)(a), F.S.
80
TE -2
Include a policy or policies addressing site planning
requirements to ensure safe and convenient on -site traffic
flow.
87
TE -3
Add a policy that the City will advocate for a transit
37
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connection between GoLine Routes 9 and 12 along
Schumann Drive /66 Avenue.
TE -4
Prioritize pedestrian bicycle improvements along Schumann
Avenue between GoLine Routes 9 and 12.
37
37
TE -5
Add a policy to pursue the establishment of a grid street
system along the CR 510 corridor south of the City's current
boundaries, including at least one east -west collector
roadway between CR -510 and Barber Street.
37
TE -6
Add provisions to prioritize multi -modal transportation
infrastructure as development occurs along the CR -510
corridor.
37
TE -7
Add a policy to specifically review all road improvement
plans for multi -modal opportunities, particularly with regard
to routes identified on the North County Greenways Plan.
37
TE -8
Add a policy to pursue coordination with GoLine Transit to
establish and operate a trolley system through the
Downtown Sebastian section of US -1.
37
TE -9
Make provisions to encourage the use of alternative and
fuel- efficient vehicles. Examples include allowing golf carts
on certain streets (e.g. those with bicycle lanes) and
providing for motor scooter parking, particularly Downtown.
37
TE -10
Add a policy statement that Sebastian considers the function
of the Riverfront area a multi -modal commercial core a
higher priority than the efficient movement of vehicles along
US -1, and that the City's does not support any future
widening /additional lanes on US -1 through the City's
highway.
51
TE -1 1
Add a policy statement that the City supports maintaining a
slow speed limit on US -1 with the City's boundaries
consistent with a dense, pedestrian- oriented area.
51
TE -12
Add a policy that the City will continually seek funding for
multi -modal streetscape enhancements within the Riverfront
area.
51
TE -13
Revise policies calling for pedestrian, bicycle and
greenways planning and for land development code reviews
dealing with similar issues, to clarify that such plans and
studies are to be conducted together, as part of a plan to
improve multi -modal mobility in Sebastian.
62
TE -14
On an ongoing basis, review right -of -way width
requirements for roadways to ensure that there is adequate
space for bicycle and pedestrian improvements, including
greenways where applicable.
62
TE- l 5
Include a policy to review all proposed road improvements in
and near Sebastian to ensure that any opportunities for
advancement of the North County Greenways Master Plan
have been included.
62
TE 16
If mobility fees or a similar concept (discussed at more
length in Major Issue #1) are instituted in Sebastian,
consider redirecting a portion funding from roadways to
bicycle pedestrian facilities, including greenways.
62
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Housing Element (HE)
HE 1
Add an objective and supporting policies addressing the use
of renewable energy resources in residential development.
81
HE -2
Add provisions to address specific programs and actions to
streamline the permitting process and minimize costs and
delays in the construction of new housing.
86
Public Facilities Element (PFE)
PFE -1
Comprehensively update the PFE data and analysis.
1
PFE -2
Amend the PFE to include a 10 -Year Water Supply Facilities
Work Plan. Because centralized water service in Sebastian
is provided by Indian River County, this Work Plan will be
consistent with the County's.
76 77
PFE-3
Amend the PFE to be consistent with the Regional Water
Plan's latest update.
77 78
Coastal Management Element (CME)
CME -1
Comprehensively update the CME data and analysis.
1
CME -2
Amend the CME to include strategies to preserve
recreational and commercial working waterfronts.
78
CME -3
Update the definition of the Coastal High Hazard Area
(CHHA per s. 163.3178(2)(h), F.S.
80
CME -4
Update the CME to acknowledge the marina siting criteria
found in the Indian River County Manatee Protection Plan,
as well as to consider these criteria in the updated data and
analysis for the element.
83 -85
Conservation Element (CONS)
CONS -1
Comprehensively update the Conservation Element data
and analysis, which update must not exclude identification
and analysis of groundwater and important fish or shellfish
areas.
1
CONS -2
Through the update of the element's data and analysis,
determine whether any changes to objectives and policies
are necessary to support the Regional Water Supply Plan.
76
CONS -3
Update the Conservation Element to include consideration
of, and policies toward, factors that affect energy
conservation.
81
CONS -4
Update the Conservation Element to include specific
measures to reduce per capita potable water use in the City
of Sebastian.
93
Recreation and Open Space Element (ROS)
ROS -1
Comprehensively update the Recreation and Open Space
data and analysis, and add waterways to the subjects
addressed.
1 78
ROS -2
Amend the ROS Element to remove the distinction between
community and neighborhood parks for LOS purposes, as
well as to remove facility- specific LOS standards, in favor of
a simple LOS standard for parks of four acres per 1,000
population.
20 62
ROS -3
Include policies encouraging public private partnerships with
62
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local organizations that promote bicycling, hiking,
canoeing /kayaking and other forms of eco- tourism.
ROS -4
Include a policy in the Parks and Recreation Element to
consider the future use of Recreation Impact Fees (RIF) to
fund development of greenways.
62
ROS -5
Add a policy stating that to the extent feasible, all parks
located adjacent to a canal shall have an area suitable for
launching a canoe, kayak or similar small craft.
62
Intergovernmental Coordination Element (ICE)
ICE -1
Add a policy to specifically recognize the airport master
plan.
82
ICE -2
Amend the ICE to include a mandator dispute resolution
process.
82
ICE -3
Amend the ICE to provide for an interlocal agreement
between the City and Indian River County regarding airport
zoning regulations.
82
ICE -4
Add a policy to acknowledge the marina siting criteria found
in the Indian River County Manatee Protection Plan.
83
ICE -5
Amend the ICE to include an objective to ensure adoption of
interlocal agreements within one year of adoption of an
amendment ICE.
88
ICE -6
Amend the ICE to include policies that spell out procedures
to identify and implement joint planning areas for purposes
of annexation, municipal incorporation and joint
infrastructure areas.
88
ICE -7
Amend the ICE to include policies addressing the
establishment of joint processes between local governments
for the siting of facilities with county -wide significance.
89
ICE -8
Amend the Intergovernmental Coordination Element to
specifically state that the City will make full use of the
development of regional impact process as nearby lands
seek development approval to ensure that impacts to
Sebastian's infrastructure is mitigated to the greatest extent
possible.
50
ICE -9
Include a policy to review all proposed road improvements in
and near Sebastian to ensure that any opportunities for
advancement of the North County Greenways Master Plan
have been included.
62
ICE 10
Revise the ICE to address implementation of the North
County Greenways Master Plan.
62
ICE-11
Pursue establishment of formal processes with the County
that would provide the City the opportunity to review and
comment on all Comprehensive Plan, zoning and
development applications for land near the City.
70
ICE -12
Pursue joint planning arrangements with Indian River
County to plan for future growth and development of the CR-
510 Corridor south of the City, and the CR -512 corridor west
of the St. Sebastian River. Joint planning arrangements
could include such things as joint corridor planning, adoption
of identical land development regulations for the corridor.
70
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ICE -13
As determined through update to the Public Facilities
Element, amend the CIE as required to be consistent with
the Regional Water Supply Plan.
76
ICE -14
Amend the CIE to include any guidelines for granting
concurrency exceptions.
79
Public School Facilities Element
PSFE -1
Update the PSFE to include future conditions maps
depicting the general location of new schools and school
improvements.
78
General Recommendations
GEN 1
Amend the Future Land Use, Transportation and Capital
Improvements Elements to include land use and
transportation strategies to support and fund mobility.
Mobility planning should include consideration and
evaluation of the following concepts:
o Identify existing and future "nodes" both within
the City's current boundaries and in potential
annexation areas of appropriate development
and pedestrian amenities, chosen based on
factors such as existing and future
pedestrian /bicycle infrastructure and transit
stops.
o Prioritizing bicycle system improvements that
provide direct and convenient connections
between the "nodes."
o Allowing for the payment of an in -lieu fee instead
of constructing required off street parking, with
the fee being used to construct public parking
within the "node," preferably as on- street parking
to enhance urban design.
o Base any future increases in residential density
on the availability of transit, bicycle and
pedestrian facilities.
o Encourage bicycle parking for commercial
development along significant existing /future
bicycle routes by developing incentives.
o Credits to the "local mobility fee," or other
incentives, to encourage such things as: transit,
bicycle and pedestrian improvements; employee
bike storage and shower facilities for larger
employers; preferred parking for compact /fuel-
efficient vehicles.
o Minimum density /intensity standards within
identified "nodes."
36,
37
81
GEN -2
Amend the Land Development Regulations to require that
the City consult with the water supply agency prior to issuing
a building permit to ensure that adequate water supplies to
serve new development will be available by the date of
issuance of a certificate of occupancy.
78
GEN -3
Amend the Land Development Regulations to integrate the
93
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school concurrency system.
GEN -4
Consider approaching the County, other municipalities and
the School District in order to better coordinate population
projections.
93
GEN -5
Consider amendments to the Comprehensive Plan to
institute a "local mobility fee" to fund multi -modal
improvements, either as a replacement to, or in conjunction
with, existing impact fees.
36
GEN -6
Create a new Economic Development Element to be
incorporated into the Comprehensive Plan, and amend other
elements as necessary for internal consistency.
45
GEN -7
Incorporate the Airport industrial land marketing strategies
from the Patterson Bach report into the new Economic
Development Element.
45
GEN -8
Ensure that the new Economic Development Element is
geared toward specific funding opportunities for green
industries /jobs and energy- efficiency efforts.
45
GEN -9
As part of economic development efforts, market the City as
a more "green" alternative to other localities, emphasizing
the green /sustainable efforts that are recommended in the
EAR.
45
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