Capital Improvements

EVALUATION AND APPRAISAL REPORT
SECTION H. CAPITAL IMPROVEMENTS ELEMENT
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Preparation of this document was aided through financial assistance received from the State of Florida Evaluation and Appraisal Report Assistance Program authorized by Chapter 93-206, Laws of Florida, and administered by the Florida Department of Community Affairs.

Prepared September, 1998, by the Putnam County Planning, Zoning and Building Department

Updated June, 1999, by the Northeast Florida Regional Planning Council

I. General Status of Capital Improvements Element

Below is an analysis of the Capital Improvements Element. This Element provides the direction for capital expenditures associated with future development in the County. The analysis is divided into four parts. Part A is an assessment of the background document on which the adopted portion of the element is based. Part B identifies recommended changes to the goals, objectives and policies based on the assessment of the background document and any changes to growth management laws and rules. Please note, further assessment of the objectives and policies is the subject of Section II of this document which includes additional recommendations for amendments to the objectives and policies and provides an assessment of the plan at the date of the EAR. Part C is an assessment of adopted figures, such as maps and lists, which includes a recommendation regarding whether to retain, delete or amend them. Part D is an assessment of adopted tables which includes a recommendation regarding whether to retain, delete or amend them.

The assessments in Parts A through D include, where appropriate, the following:

summary statements regarding the data and analysis at time of plan adoption

identification of changes in conditions described in the element since plan adoption including current conditions

provision of a new existing land use map

provision of a new table of existing land uses

provision of a new existing traffic circulation map

a summary of the condition and quality of all natural resources

identification of changes made to the element since adoption of the plan including background information, map changes and amendments to adopted maps and text (see Appendix 1)

identification of problems specifically listed in Rule j-5.0053(6)(a)4.a.-o.(each element will not include all items listed in a.-o., see Appendix 2)

identification of other unanticipated and unforeseen problems and opportunities and their impact on the comprehensive plan

statements regarding the effect on the comprehensive plan of changes to the State Comprehensive Plan, Strategic Regional Policy Plan, Rule j-5, F.A.C., and Chapter 163, Part II, F.S.

identification of any needed actions to address the issues raised in this section including provision of new, revised, minimum 5-year and minimum 10 year time frames and population projections; updated population projections; new and revised goals, objectives, and policies; revised future conditions maps; new capital improvements element; new monitoring and evaluation procedures; and studies to be completed.

A. Background Document

Summary - The summary makes statements about millage rates, impact fees, revenue increases and expenditure rates. This information has not been updated since 1991.

Recommendation - Update the summary after the other sections are revised and updated.

Introduction - The introduction states the element will address capital improvements needed for sanitary sewer, solid waste, drainage, potable water and recreation facilities. It also provides definitions from Rule j-5, F.A.C., and discusses concurrency needs, a planning response, and the fivefold purpose of the element stated in Rule j-5. This section has not been updated.

Recommendation - Update as necessary after review of the rest of the document.

Inventory - This section is divided into thirteen subsections. The first eight subsections provide an inventory of public facilities specifically required by the Growth Management Act, and describe level of service standards for facilities inventoried and analyzed in the Traffic Circulation, Infrastructure, and Recreation and Open Space Elements of the plan. None of the first eight subsections have been updated. Several changes to inventories and level of service standards are noted in the sections of this EAR discussing the Traffic Circulation, Infrastructure, and Recreation and Open Space Elements.

Recommendation - update the first eight subsections to describe the current regulatory framework. Include updated information noted in the Traffic Circulation, Infrastructure, and Recreation and Open Space Elements.

The ninth subsection describes public education and public health facilities in 1991. Many improvements have been made to existing public schools between 1991 and 1999 and new schools have been built. A new middle school in the Florahome area is planned. Public health facilities consisted of one hospital and two nursing homes. The subsection has not been updated.

Recommendation - Update this subsection to reflect current conditions in the identified areas.

The tenth through the thirteenth subsections describe existing revenue sources and funding mechanisms available in 1991 to the County to fund Capital Improvements. This section provides a detailed description of the various revenue sources and funds. The information has not been updated since 1991.

Recommendation - These subsections should be a section by themselves. The information needs to be updated.

Analysis - This section describes the County's ability to pay for public facility improvements based on the County's present financial situation and operating conditions. Possible alternate sources of financing are also described. Public facilities needs, costs and methods of payment are discussed. None of this information has been updated since 1991.

Recommendation - Obtain updated information from the Finance Department and input updated information on facility needs from the inventory section.

B. Goals, Objectives and Policies

Changes in Chapter 163, Part II, F.S. - There were no changes in Chapter 163, Part II, Florida Statutes, that affect the Capital Improvements Element.

Changes in Rule 9J-5 - No significant changes have been made to F.A.C. Rule 9J-5 since the adoption of Putnam County Comprehensive Plan that would require changes to the Capital Improvements Program.

State Comprehensive Plan - No significant changes have been made to the State Comprehensive Plan since the adoption of Putnam County Comprehensive Plan that would require changes to the Capital Improvements Program.

Strategic Regional Policy Plan - No significant changes have been made to the Strategic Regional Policy Plan since the adoption of Putnam County Comprehensive Plan that would require changes to the Capital Improvements Program.

Staff review of the Goals, Objectives and Policies - Ordinance 93-19 amended all policies providing level of service standards for public facilities to be consistent with the policies establishing level of service standards in the Traffic Circulation, Infrastructure, and Recreation and Open Space Elements.

Ordinance 98-2 amended Policy H.5.1.9 to be consistent with an amendment to the recreation level of service in the Recreation and Open Space Element, and amended Policy H.5.1.11 to be consistent with an amendment to the level of service standards for roads in the Traffic Circulation Element. In the adopted plan there is a reference to an ordinance in brackets after each objective and policy amended since plan adoption. Other recommended amendments are outlined in Section II below.

Recommendation - After completing the review of updated information, add any necessary objectives and policies. All proposed amendments to the goals, objectives and policies of Putnam County's plan must be reviewed for consistency with the SRPP and the State Plan. This will take place as the amendments to implement the findings in this report are prepared for public hearings. Delete all references to the CRPP.

C. Adopted Figures (maps and lists) - There are no adopted figures in this element.

D. Adopted Tables - Table H-9 Capital Improvements Schedule was required by s. 9J-5.016(4)(a). The table has not been updated. The County Administrator has formed a capital improvements committee to review capital improvement needs and funding sources. The committee will make recommendations to the Board based on comprehensive plan policies addressing the capital improvements program.

II. Achievement of Capital Improvement Objectives

Section 9J-5.0053(6)(a)3 of the Florida Administrative Code requires the County to complete an analysis to determine whether or not the objectives adopted in the County's Comprehensive Plan were achieved between December 1991 and August 1999. Below is an analysis of the Capital Improvements Element objectives. Under each objective is a statement indicating what measure should be used to determine whether or not the objective has been achieved, a status statement regarding what has been done to meet the objective, and a recommendation to retain, amend or delete the objective. Following the analysis of the objective, each policy under the objective is analyzed. The analysis includes a recommendation to retain, amend or delete the policy, and statements regarding how the policy has been implemented.

GOAL H.1 [9J-5.016,3,(a); ]: To provide a financially feasible plan by which the County can provide public facilities, recreational facilities and roads for its residents concurrent with new development in an amount which meets or exceeds adopted standards for Level of Service (LOS).

Objective H.1.1 [9J-5.016,3,(b)1; ]: Maintain and annually update a five year capital budget detailing the expenditures necessary for each new or renovated public facility, ranked in a list of need priorities and then compared with estimated funds available for debt service.

Measure: Maintain and update a five year Schedule of Capital Improvements.

Status: County has not prepared a five year Schedule of Capital Improvements. The County Administrator has requested and received Department capital budget requests and is forming a CIP committee to develop a 5 year 5-year Schedule of Capital Improvements. CIP committee will consider this objective in the process of annually updating the CIP.

Recommendation: Amend Objective H.1.1 to change the term "capital budget" to 5-year Schedule of Capital Improvements.

Policy H.1.1.1 [j-5.016(3)(c)(1)a & b]: Review all current deficiencies reported in the Comprehensive Plan and identify facility needs in accordance with the following criteria:

1. Facilities that are needed to protect, or that eliminate a hazard to, the public health, welfare or safety.

2. Facilities that must be upgraded to eliminate existing capacity deficits.

3. Facilities required to serve development areas that have vested development approval prior to the adoption of the plan.

4. Facilities required to serve redevelopment areas identified in the comprehensive plan.

5. Facilities needed to provide service to new development in accord with the land use element of the plan.

6. Facilities that will serve the identified needs in future plans of the St. Johns River and Suwannee River Water Management Districts and other state agencies that may provide public facilities within the County.

Retain Policy H.1.1.1. CIP committee will consider this policy in the process of annually updating the CIP.

Policy H.1.1.2: Review projects with each department and appropriate consultants or other sources to provide best cost and time estimates for each proposed facility.

Retain Policy H.1.1.2. CIP committee will consider this policy in the process of annually updating the CIP.

Policy H.1.1.3 [j-5.016(3)(c)1]: Include all identified facility needs identified in the Public Facilities, Recreation and Traffic Circulation Elements.

Amend Policy H.1.1.3 to change "Public Facilities" to "Infrastructure". CIP committee will consider this policy in the process of annually updating the CIP.

Add Policy H.1.1.4 to address j-5.016(3)(c)7, to provide for the adoption of a capital budget as a part of the annual budgeting process.

Objective H.1.2 [j-5.016(3)(b)1]: By June 1, 1992, develop and annually maintain a list of inefficient, worn-out or obsolete facilities that may become infrastructure deficiencies requiring upgrading or replacement before the year 2001.

Measure: List completed and updated annually.

Status: No action was taken during the planning period. CIP committee will consider this objective in the process of annually updating the CIP.

Recommendation: Amend Objective H.1.2 to delete "By June 1, 1992, " and replace with ABy the EAR based amendment adoption date, March 2001" and change 2001 to 2008 or 2009.

Policy H.1.2.1 [j-5.016(3)(c)1 & 3]: County departments shall review capital facilities annually to determine the extent of effective economic life remaining in each facility.

Retain Policy H.1.2.2. CIP committee will consider this policy in the process of annually updating the CIP.

Policy H.1.2.2 [j-5.016(3)(c)1 & 3]: County departments shall estimate the construction costs for each facility proposed for replacement within the five-year capital budgeting period.

Amend Policy H.1.2.2 to change Acapital budgeting period@ to Schedule of Capital Improvements and add associated costs. CIP committee will consider this policy in the process of annually updating the CIP.

Policy H.1.2.3 [j-5.016(3)(c)1 & 3]: County departments shall review outmoded and other economically inefficient public facilities for inclusion in new proposed infrastructure.

Amend Policy H.1.2.3 to be more clearly state that County departments will include proposals to replace outmoded and inefficient facilities in their capital improvement requests. CIP committee will consider this policy in the process of annually updating the CIP.

Objective H.1.3 [j-5.016(3)(b)1 & 3; ]: Upon Plan adoption, maintain and annually update a five year Schedule of Capital Improvements (Table H-9) to coordinate and accommodate land use decisions and desired future growth in accord with the provisions of the comprehensive plan detailing the timing and expenditures costing more than $25,000, necessary for each new or to be renovated public facility, ranked by priority of need, with funding sources available for debt service.

Measure: Maintain and update a five year Schedule of Capital Improvements

Status: County has not annually maintained a five year Schedule of Capital Improvements. CIP committee will address this objective in the process of annually updating the CIP.

Recommendation: Revise Objective to delete "Upon plan adoption", and review policy with County Administrator and Finance Director to determine if it is necessary to amend the content further.

Policy H.1.3.1 [j-5.016(3)(c)(1) d & e; ]: Review and rank need for new and additional public infrastructure as detailed in the Comprehensive Plan with the advice of the County department heads and the public annually.

Retain Policy H.1.3.1. CIP committee will consider this policy in the process of annually updating the CIP.

Policy H.1.3.2 [j-5.016(3)(c)(1) c & f]: Review projects with each department and appropriate consultants or other sources to provide best construction cost and time estimates for each proposed facility or addition.

Retain Policy H.1.3.2. CIP committee will consider this policy in the process of annually updating the CIP.

Policy H.1.3.3 [j-5.016(3)(c)(1) c & f]: Review Putnam County budget and other available revenue sources and estimate future funds available for public facility debt service.

Retain Policy H.1.3.3. CIP committee will consider this policy in the process of annually updating the CIP.

Policy H.1.3.4 [j-5.016(3)(c)5]: Review outstanding land development orders to insure public facility impacts of development are included in the capital budgeting process annually.

Retain Policy H.1.3.4. CIP committee will consider this policy in the process of annually updating the CIP.

Policy H.1.3.5 [j-5.016,3,(c)9;]: Review all proposed new capital facilities against the criteria contained in the various Comprehensive Plan Elements to ensure that the proposed facilities are in conformance with the planned goals and objectives of Putnam County.

Retain Policy H.1.3.5. CIP committee will consider this policy in the process of annually updating the CIP.

Policy H.1.3.6 [j-5.016(3)(c)7]: Include adoption of a Five Year Capital Budget with an annually updated Five Year Schedule of Improvements (Table H-9) at the time of the adoption of the annual governmental budget of Putnam County.

Retain Policy H.1.3.6. CIP committee will consider this policy in the process of annually updating the CIP. Delete AFive Year@ before Capital Budget and replace with Aan annual@.

Policy H.1.3.7 [j-5.016(3)(c)(2)a]: There shall be no limitation placed on the use of revenue bonds as a percentage of the total public debt of Putnam County.

Retain Policy H.1.3.7. CIP committee will consider this policy in the process of annually updating the CIP.

Policy H.1.3.8 [j-5.016(3)(c)(2)b]: The maximum debt service that may be outstanding for capital improvement bonds in any given year shall not exceed the total of: twenty (20) percent of the general fund revenues and fifty (50) percent of the total enterprise fund revenues as estimated to be collected by the County in that year.

Amend Policy H.1.3.8, if necessary, after reviewing the percentages with the County Administrator, Finance Director and the Board to determine if they are adequate. CIP committee will consider this policy in the process of annually updating the CIP.

Policy H.1.3.9 [j-5.016(3)(c)(2)c]: The ratio of outstanding capital improvement bonded indebtedness shall not exceed twenty (20) percent of the total nonexempt real property just value (ad valorem tax base) of the County.

Amend Policy H.1.3.9, if necessary, but after reviewing the percentage with the County Administrator, Finance Director and the Board to determine if it is adequate. CIP committee will consider this policy in the process of annually updating the CIP.

GOAL H.2 [j-5.016(3)(a); ]: Coordinate land use decisions with projected new or improved public facilities to maintain the required level of service.

Objective H.2.1 [j-5.016(3)(b)5]: By June 1, 1992, all new development or redevelopment shall be provided with infrastructure at the required level of service, as stated in the Comprehensive Plan, in accordance with the schedule specified by j-5.0055(2)a, b and c.

Measure: Review development for meeting concurrency requirements.

Status: County's development review procedures address this objective. The draft land development code, to be adopted prior to EAR amendments, includes sections which implement this objective.

Recommendation: Amend Objective H.2.1 to delete "By June 1, 1992" and update j-5 reference.

Policy H.2.1.1 [j-5.016(3)(c)6; ]: Review land use decision impacts and timing against existing and future facilities as proposed in the Capital Improvements schedule for maintenance of required level of service.

Retain Policy H.2.1.1. County's development review procedures address this policy. The draft land development code, to be adopted prior to EAR amendments, includes sections which implement this policy.

Policy H.2.1.2 [j-5.016(3)(c)6; ]: Require the Designated Official to certify that required levels of service will be maintained concurrent with project needs before the project is permitted to be heard by the County Planning Board for approval of development orders, or building permits are issued.

Amend Policy H.2.1.2 by removing "Designated Official" and indicate whose responsibility it will be to certify required Levels of Service. It probably should be different departments for different facilities. County's development review procedures address this policy. The draft land development code, to be adopted prior to EAR amendments, includes sections which implement this policy.

Policy H.2.1.3 [j-5.016(3)(c)8]: The County shall require each applicant to pay his share of the cost of upgrading or expanding existing County facilities, or to construct new facilities, as necessary in order to maintain the level of service required to be provided in the Comprehensive Plan before a building permit is issued.

Retain Policy H.2.1.3. Impact fees were adopted and subsequently repealed. County's development review procedures address this policy. The draft land development code, to be adopted prior to EAR amendments, includes sections which implement this policy.

GOAL H.3 [j-5.016(3)(a)]: Require future development to pay their fair share of the costs of providing public infrastructure at the levels of service included in the Comprehensive Plan.

Objective H.3.1 [j-5.016(3)(b)4]: By June 1, 1992, adopt Land Development Regulations to obtain fair share exaction from developers to hold harmless present residents and taxpayers of Putnam County for the provision of public infrastructure at the required LOS.

Measure: Amount of funds paid by developers for infrastructure improvements

Status: Impact fees were adopted and subsequently repealed. Concurrency is addressed in the development review process. The draft land development code, to be adopted prior to EAR amendments, includes sections which implement this objective.

Recommendation: Amend Objective H.3.1 to remove "By June 1, 1992", and insert "and maintain" after adopt. This will be addressed in the EAR based amendments.

Policy H.3.1.1 [j-5.016(3)(c)8]: Set fair share exaction where necessary by evaluating impact of new development against level of service, existing facilities capacity and the fair share cost of improving infrastructure capacity to maintain an adequate level of service.

Retain Policy H.1.3.1. County's development review procedures address this policy. The draft land development code, to be adopted prior to EAR amendments, includes sections which implement this policy.

Policy H.3.1.2 [j-5.016(3)(c)8]: Collect a fair share exaction in those cases where the new development will create the necessity that Putnam County construct new capital facilities or expand existing capital facilities to maintain a required level of service.

Retain Policy H.1.3.2. County's development review procedures address this policy. The draft land development code, to be adopted prior to EAR amendments, includes sections which implement this policy.

GOAL H.4 [j-5.016(3)(a)]: The County shall periodically monitor and review level of service standards as contained in the Comprehensive Plan to maintain and improve the quality of the County's life services.

Objective H.4.1 [j-5.016(3)(b)3 and 5;]: Public or private infrastructure currently serving all areas of the County shall meet or exceed the required Level of Service by June 1, 1994.