treasure coast regional planning council dri summary agenda... · draft subject to modifications...

DRAFT Subject to Modifications

TREASURE COAST REGIONAL PLANNING COUNCIL

M E M O R A N D U M

To: Council Members AGENDA ITEM 11 From: Staff Date: October 21, 2011 Council Meeting Subject: Summary of Development of Regional Impact Activity in the Treasure Coast Region Introduction At the June 17, 2011 Council meeting, Council requested that staff provide a summary of Development of Regional Impact (DRI) activity in the region. Specifically, Council asked if staff could provide a report that describes the cumulative impacts of all DRIs approved in the region in terms of number of people and vehicle trips. Council also requested information on the buildout status of each DRI, and a comparison of what was built versus what was approved. This report summarizes the DRI activity in the region to date. The report also describes some of the challenges encountered in providing a more detailed analysis of DRIs in the region. Background Developments of Regional Impact were first defined in the Environmental Land and Water Management Act of 1972 (Sections 380.012-380.07, Florida Statutes). The DRI process is governed by Section 380.06, Florida Statutes, which identifies the types of development and numerical thresholds that determine what projects qualify for this program. The statute defines a DRI as any development which, because of its character, magnitude, or location, would have a substantial effect upon the health, safety, or welfare of citizens of more than one county. Regional planning councils are responsible for coordinating the review of DRIs within their regions. A major responsibility of the regional planning council is to prepare and submit to the local government a report and recommendations on the regional impact of the proposed development. The report typically makes recommendations on how to mitigate or eliminate impacts to regional resources, facilities, and adjacent jurisdictions. The local government with jurisdiction has the responsibility to make a determination on final approval of each DRI and adopt a development order with conditions of approval. Treasure Coast Regional Planning Council was created by Interlocal Agreement between Indian River, St. Lucie, Martin, and Palm Beach counties in 1976. The first DRI reviewed by Council was in 1978. Prior to this time, South Florida Regional Planning Council (SFRPC) reviewed DRIs in the region.


Summary of DRIs in the Region The available records indicate that 90 DRIs have been proposed in the region (Exhibit 1), including 65 projects that received a local government development order and remain viable today; 23 that are nonviable because they were abandoned, denied, rescinded, suspended, or withdrawn prior to the initiation of any development; and 2 that were recently submitted and are currently under review. The viable DRIs are shown in green on the attached map of the region (Exhibit 2). The projects shown in green also feature 3 DRIs that are essentially built-out, but the DRI status was officially abandoned after being completed. These include Jupiter Medical Center, North Palm Beach County General Aviation Facility, and Palm Beach County International Airport. The nonviable DRIs are shown in red on the map in Exhibit 2, and the 2 recently submitted DRIs (Harmony and Hobe Grove) are shown in yellow. The map in Exhibit 2 illustrates that most of the DRIs are located in the eastern portion of the region. The DRIs are distributed in all 4 counties of the region, as shown in the following table:

County

Proposed1 DRIs

Approved1 DRIs

Submitted DRIs

Other2 DRIs

Indian River 7.5 5.5 0 2St. Lucie 23.5 18.5 0 5Martin 17 10 2 5Palm Beach 42 31 0 11Total 90 65 2 231The Lake Pointsett-Martin-Midway DRI transmission line was located in Indian River and St. Lucie counties 2Includes DRIs that were abandoned, denied, rescinded, suspended, or withdrawn prior to development

Approximately 46.7% of the DRIs are located in Palm Beach County, 26.1% in St. Lucie County, 18.9% in Martin County, and 8.3% in Indian River County. The DRI approval rate as measured by the percentage of proposed DRIs approved is 78.7% in St. Lucie County, 73.8% in Palm Beach County, 73.3% in Indian River County, and 66.7% in Martin County. The Martin County percentage excludes the submitted DRIs in this calculation. DRIs and Population Growth in the Region U.S. Census data indicate that the population of the region has grown from 1,204,797 in 1990 to 1,882,269 in 2010, representing a 56.2% increase as shown in the following table:

County

1990 Population

2000 Population

2010 Population

Indian River 90,208 112,947 138,028 St. Lucie 150,171 192,695 277,789 Martin 100,900 126,731 146,318 Palm Beach 863,518 1,131,184 1,320,134 Total 1,204,797 1,563,557 1,882,269

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Changes in population growth of the region are illustrated in color-coded maps of persons per square mile in census tracts using 1990 census data in Exhibit 3, 2000 census data in Exhibit 4, and 2010 census data in Exhibit 5. These maps also include a plot of the viable DRIs for the appropriate time period. The 1990 population map (Exhibit 3) includes all the viable DRIs from 1973 to 1990, the 2000 map (Exhibit 4) includes the DRIs from 1973 to 2000, and the 2010 map (Exhibit 5) includes the DRIs from 1973 to 2010. Comparison of the population maps in Exhibits 3-5 shows that the location of DRIs has closely followed the areas where population growth is most evident in the region. For example, comparison of southern St. Lucie County in the three maps illustrates population growth in the City of Port St. Lucie from 1990 to 2010. From 1990 to 2000, only one new DRI was added to this area, but the changes in color of the census tracts suggest significant population growth. Comparison of this same area from 2000 to 2010 continues to indicate significant population growth. The 2010 map shows a large cluster of relatively new DRIs in western Port St. Lucie. However, the impact of these DRIs on the population of the area is yet to be seen. Three of the 6 most recent DRIs in western Port St. Lucie have not yet started to build (Riverland/Kennedy, Western Grove, and Wilson Groves). Considering all 9 DRIs in western Port St. Lucie and St. Lucie County, only 12,960 (22%) of the 58,874 residential units approved have been built. Using the latest University of Florida, Bureau of Economic and Business Research (BEBR) occupancy rate for St. Lucie County of 2.43 persons per household, and assuming 100% occupancy, these DRIs could account for an existing population of 31,493 persons, compared with a future potential population of 143,064 persons. The impact of DRIs on the total population in the region can be estimated by multiplying the number of actual residential units built in DRIs by the latest average household size provided by BEBR. The average household size is 2.23 persons in Indian River County, 2.43 persons in St. Lucie County, 2.21 persons in Martin County, and 2.34 persons in Palm Beach County. Use of these values yield the following estimates of the total percent of population attributed to DRIs:

County

2010 Total Population

DRI Population

DRI Percent of Total

Indian River 138,028 5,087 3.7% St. Lucie 277,789 48,129 17.3% Martin 146,318 21,355 14.6% Palm Beach 1,320,134 65,031 4.9% Region 1,882,269 139,607 7.4%

This analysis indicates that DRIs have played a much greater role in the total population growth in St. Lucie and Martin counties, and are responsible for far less of the total population growth in Indian River and Palm Beach counties.

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DRIs and Traffic in the Region Analysis of the impact of DRIs on traffic in the region proved to be a difficult task for several reasons. First, vehicle trips generated by a DRI are approved during the review process. The total number of trips is adjusted to take into consideration interaction among the proposed uses (internal capture) as well as traffic that is already in the roads and will now “stop” at the proposed development (pass-by). The resulting trips are usually referred to as “net external trips,” since these are the trips that will impact the external roadway network. While information on trip generation is available for the most recent DRIs, there are many others where this information is unavailable. Furthermore, DRI trip generation methodology has not been consistent over time. Second, the total number of trips approved for all DRIs in the region may not be a good indication of traffic impact. These trips will disperse into the roadway network. Additionally, some of the trips will interact among several of the DRIs. Therefore, totaling all DRI trips approved in the region does not equal to an “increase” of traffic in the region by the same amount. If Council would like to estimate trip generation for all DRIs in the region, a traffic engineer would have to complete this complex and time consuming task. Total trip generation could be estimated using trip generation rates, but estimating internal capture and pass-by is more complicated. Build-out Status of DRIs in the Region The Build-out status of the 65 DRIs that received a local government development order and remain viable today were characterized as “Complete,” “In Progress,” or “Not Started” (Exhibit 1). Forty (66.6%) of the DRIs were found to be Complete, 20 (30.8%) are In Progress, and 5 (7.7%) have not started building. Indian River County had 81.8% complete, followed by Martin County with 70% complete, Palm Beach with 61.3% complete, and St. Lucie County with 51.4% complete, as shown in the following table:

County

Approved1 DRIs

Build-out1 Complete

Build-out In Progress

Building Not Started

Indian River 5.5 4.5 1 0 St. Lucie 18.5 9.5 6 3 Martin 10 7 2 1 Palm Beach 31 19 11 1 Region 65 40 20 5

1The Lake Pointsett-Martin-Midway DRI transmission line was located in Indian River and St. Lucie counties

Approximately 48.2% of the DRI residential dwelling units (DU) approved in the region has been built. The highest percentages of approved DRI residential units built are in Martin County with 74.0% and Palm Beach County with 73.3%. Indian River County has 41.5% of the approved DRI residential units built, followed by St. Lucie County with 29.4%, as shown in the following table:

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County

Approved Residential

(DU)

Built Residential

(DU)

Percent

Built Indian River 5,492 2,281 41.5% St. Lucie 67,340 19,806 29.4% Martin 13,050 9,663 74.0% Palm Beach 38,308 28,096 73.3% Region 124,190 59,846 48.2%

Approximately 45.3% of the DRI non-residential square feet (SF) approved in the region has been built. The highest percentage of approved DRI non-residential SF is in Indian River County with 75.4%, followed by Martin County with 64.9%, Palm Beach County with 52.8%, and St. Lucie County with 28.2%, as shown in the following table:

County

Approved Non-Residential

(SF)

Built Non-Residential

(SF)

Percent

Built Indian River 2,188,174 1,649,163 75.4% St. Lucie 29,446,372 8,317,024 28.2% Martin 4,025,342 2,614,239 64.9% Palm Beach 47,691,297 25,162,103 52.8% Region 83,351,185 37,742,529 45.3%

This analysis indicates that within the region, slightly less than half of all residential units and non-residential square footage approved in DRIs have been built. Future of DRIs in the Region Significant changes were made to the DRI regulations in Section 380.06, Florida Statutes, when Florida Senate Bill 360 was signed into law on June 1, 2009. Many of these same changes were reaffirmed when Florida House Bill 7207 was signed into law on June 2, 2011. Proposed developments are now automatically exempt from the DRI process if located in: 1) a municipality that has an average of at least 1,000 people per square mile of land area and a minimum total population of at least 5,000; 2) a county, including the municipalities located in the county, that has an average of at least 1,000 people per square mile of land area and is located within an urban service area as defined in Section 163.3164, Florida Statutes, which has been adopted into the comprehensive plan; 3) a county, including the municipalities located therein, which has a population of at least 900,000, that has an average of at least 1,000 people per square mile of land area, but which does not have an urban service area designated in the comprehensive plan; or 4) a county, including the municipalities located therein, which has a population of at least 1 million and is located within an urban service area as defined in Section 163.3164, Florida Statutes, which has been adopted into the comprehensive plan. For the region, this means that new DRIs are exempt from any location in Palm Beach County; from within qualifying urban service areas in Indian River, St. Lucie, and Martin counties; and

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6

from within all municipalities in the region except the following: City of Fellsmere, Town of Indian River Shores, Town of Orchid, Town of St. Lucie Village, Town of Jupiter Island, Town of Ocean Breeze Park, and Town of Sewall’s Point (Exhibit 6). Relatively few new DRIs are expected in the future because much of the region is now exempt from the DRI process. The development orders of previously approved DRIs in exempt areas continue to be effective. Discussion There were major challenges in collecting the information necessary to produce this summary. First, many elements of the DRIs have changed over time, including the names of many DRIs, property boundaries, local governments with jurisdiction, and regional planning councils. The first 12 DRIs processed from 1973 to 1975 in the Treasure Coast Region were reviewed by SFRPC. Second, the files of the older DRIs are not as complete as the files of newer DRIs. This includes all the information in the applications, development orders, and annual reports. Many of the development orders have been modified numerous times, making it difficult to track changes in levels of approval over time. Also, many of the DRIs have not kept up with providing annual reports. Council is missing annual reports for 23 of the 65 DRIs that received local government development orders. Many of the annual reports that Council does have contain incomplete or outdated information. Staff relied on and gratefully acknowledges the assistance from several local governments and private consultants in collecting the information necessary for this summary. Recommendation For informational purposes only. Attachments

Exhibit 1

Exhibit 1 (continued)

P a l m B e a c hM a r t i n

S t . L u c i eM a r t i n

I n d i a n R i v e rS t . L u c i e

Stuart

Jupiter

Pahokee

Sebastian

Fellsmere

Wellington

Indiantown

BocaRaton

LakeWorth

VeroBeach

BelleGlade

FortPierce

DelrayBeach

BoyntonBeach

PortSt. Lucie

WestPalmBeach

PalmBeachGardens

SR 710

I 95

A1A

US

1

US 27

JOG RD

SR 60

US 98

SR 7

SR 1

5

FL TURNPIKE

SR 80

CR 880

SR 700

CR 827

SR 8

09 / M

ILITA

RY TR

AIL

SR 7

15

SR 70 / OKEECHOBEE RD

CR 71

1

CR 51

2

CR 68 / ORANGE AVE

DIXIE HWY

SR 714 / MARTIN HWY

SR 15

CR 605

SR 80 / SOUTHERN BLVD

INDIAN RIVER DRDIXIE HWY / A1A

SR 706 / INDIANTOWN RD

GLADES RD

CR 505

10TH AVE N

85TH ST

BERM

AN R

OAD

HAGE

N RA

NCH

RD

FOX

BROW

N RD

26TH ST

FOREST HILL BLVD

NE 120 ST

Main

St

HYPOLUXO RD

138 A

VE

LANTANA RDCR 82

7 A

PGA BLVD

CR 606 / OSLO RD

NE 12

8 AVE

CR 707 / BEACH RD

CAMINO REAL

SEM-

PRAT

T WHI

TNEY

RD

BECKER RD

CR 6

09 / R

ANGE

LN

SR 7

29

NE 144 STCR

76A /

LOOP

RD

CROSSTOWN PKWY

6TH AVE S

N WINTER BEACH RD

OLIVE AVE

JUANITA AVE

CR 15B

SR 614 / INDRIO RD

HAMILTON RD

US 1

I 95

SR 60

A1A

DIXIE HWY

FL TURNPIKE

A1A

US

1US

1

A1A

FL TURNPIKE

SR 80

A1A

This map is created by Treasure Coast Regional Planning Council for planning purposes only.

August 2011

1 inch = 10 miles

Treasure Coast Region

0 5 102.5Miles

Developments of Regional Impact (DRI)Locations within Treasure Coast Region1973-2011

Application Status:

Development Order Approved

Application SubmittedAbandoned/Denied/Rescinded/Suspended/Withdrawn

Exhibit 2




Stuart

Jupiter

Pahokee

Sebastian

Fellsmere

Wellington

Indiantown

BocaRaton

LakeWorth

VeroBeach

BelleGlade

FortPierce

DelrayBeach

BoyntonBeach

PortSt. Lucie

WestPalmBeach

PalmBeachGardens


August 2011

1 inch = 10 miles

Treasure Coast Region1990 Population

0 5 102.5Miles

Source: U.S. Census 1990

Persons per Square Mile0 - 4950 - 99100 - 499500 - 9991,000 or more



Exhibit 3




Stuart

Jupiter

Pahokee

Sebastian

Fellsmere

Wellington

Indiantown

BocaRaton

LakeWorth

VeroBeach

BelleGlade

FortPierce

DelrayBeach

BoyntonBeach

PortSt. Lucie

WestPalmBeach

PalmBeachGardens


August 2011

1 inch = 10 miles


0 5 102.5Miles





Exhibit 4




Stuart

Jupiter

Pahokee

Sebastian

Fellsmere

Wellington

Indiantown

BocaRaton

LakeWorth

VeroBeach

BelleGlade

FortPierce

DelrayBeach

BoyntonBeach

PortSt. Lucie

WestPalmBeach

PalmBeachGardens


August 2011

1 inch = 10 miles


0 5 102.5Miles





Exhibit 5




Stuart

Jupiter

Pahokee

Sebastian

Wellington

Indiantown

BocaRaton

LakeWorth

VeroBeach

BelleGlade

FortPierce

DelrayBeach

BoyntonBeach

PortSt. Lucie

WestPalmBeach

PalmBeachGardens

Orchid

Fellsmere

Sewall's Point

JupiterIsland

OceanBreeze Park

St. LucieVillage

Indian RiverShores

SR 710

US 98

SR 1

5

A1A

SR 60

I 95

FL TURNPIKE

CR 71

1

CR 51

2

SR 70 / OKEECHOBEE RD

SR 714 / MARTIN HWY

CR 68 / ORANGE AVE

US 1

DIXIE HWY

SR 7

8 BERM

AN R

OAD

FOX

BROW

N RD

NE 120 ST

138 A

VECR 606 / OSLO RD

NE 12

8 AVE

CR 6

09 / R

ANGE

LN

CR 722 / COVE RD

NE 144 ST

CR 76

A / LO

OP R

D

CR 15B

SR 614 / INDRIO RD

HAMILTON RD A1A

FL TURNPIKE

I 95

A1A

US 27

SR 80

CR 880

SR 700

CR 827

US 9

8

SR 710

SR 80 / SOUTHERN BLVD

SR 706 / INDIANTOWN RD

GLADES RD

A1A

CR 71

1

BOYNTON BCH BLVD

SEM-

PRAT

T WHI

TNEY

RD


August 2011

1 inch = 10 miles

Treasure Coast Region

0 5 102.5Miles

ExemptNot Exempt

DRI Exemption Areas

Exhibit 6

treasure coast regional planning council dri summary agenda... · draft subject to modifications...

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