EVALUATION AND
APPRAISAL REPORT
SECTION H. CAPITAL IMPROVEMENTS
ELEMENT
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.
Recommendation - update the Schedule of Capital
Improvements approved by the Board after committee recommendation. Include
Public Works Capital Improvement Plan Project Listing with the EAR based
amendments and insert all appropriate references to this plan within the Goals,
Objectives and Policies.
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.