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92-O-3ORDINANCE NO. 92-0-3 AN ORDINANCE AMENDING THE EDGEWATER COMPREHENSIVE PLAN; AMENDING THE FUTURE LAND USE ELEMENT, THE COASTAL MANAGEMENT ELEMENT, THE CONSERVATION ELEMENT, AND THE CAPITAL IMPROVEMENT ELEMENT PURSUANT TO THE STIPULATED SETTLEMENT AGREEMENT WITH THE DEPARTMENT OF COMMUNITY AFFAIRS; CORRECTING A SCRIVENERS ERROR BY FORMALLY ADOPTING THE HOUSING ELEMENT; PROVIDING FOR CONFLICTING PROVISIONS AND SEVERABILITY; PROVIDING FOR AN EFFECTIVE DATE AND FOR ADOPTION. WHEREAS, the City Council of the City of Edgewater, Florida, has made the following determinations: 1. In August 1991, the City of Edgewater entered into a Stipulated Settlement Agreement with the Department of Community Affairs regarding the Edgewater Comprehensive Plan. 2. Pursuant to that Settlement Agreement it is necessary for the Comprehensive Plan to be amended by amending the Future Land Use Element, the Coastal Management Element, the Conservation Element, and the Capital Improvement Element. In addition, to correct a scriveners r -or, the Housing Elcyient must be formally v NOW, THEREFO..-, BE IT ENACTED by the Ppople of the City of Edgewater, Florida: PART A. AMENDMENT OF THE FUTURE LAND USE ELEMENT, COASTAL MANAGEMENT ELEMENT, CONSERVATION ELEMENT, AND CAPITAL IMPROVEMENT ELEMENT OF THE EDGEWATER COMPREHENSIVE PLAN. The Future Land Use Element, Coastal Management Element, Conservation Element, and Capital Improvement Element of the Comprehensive Plan are hereby amended as set forth in Exhibit A which is attached hereto and incorporated by reference. PART B. AMENDING THE EDGEWATER COMPREHENSIVE PLAN TO CORRECT A SCRIVEMERS ERROR BY FORMALLY ADOPTING THE HOUSING ELEMENT. The Comprehensive Plan is hereby amended to correct a scriveners error by formally adopting the Housing Element as set forth in Exhibit B which is attached hereto and incorporated by reference. St�Uek t reed`. passages are deleted. Underlined passages are added. 1 PART C. PROVIDING FOR THE EFFECT OF THE AMENDMENT AND THE CONSOLIDATION OF THE PLAN, RESPONSE DOCUMENT AND AMENDMENT INTO ONE DOCUMENT. Those portions of the Future Land Use Element, Coastal Management Element, Conservation Element, and Capital Improvement Element of the Comprehensive Plan amended as set forth in Exhibit A shall supersede those portions of the proposed plan and response document which are in conflict with the amendment. Subsequent to approval of the Comprehensive Plan by the Department of Community Affairs, Staff is hereby directed to consolidate the originally proposed plan, the response document and amendment into one document. Such consolidation shall include a summary of relevant documents with a revised table of contents to indicate where plan requirements, including maps and tables can be found. PART D. CONFLICTING PROVISIONS. All conflicting ordinances and resolutions, or parts thereof, in conflict with this ordinance, are hereby superseded by this ordinance to the extent of such conflict. PART D. SEVERABILITY AND APPLICABILITY. If any portion of this ordinance is for any reason held or declared to be unconstitutional, inoperative, or void, such holding shall not affect the remaining portions of this ordinance. If this ordinance or any provision thereof shall be held to be inapplicable to any person, property, or circumstances, such holding shall not affect its applicability to any other person, property, or circumstance. PART E. EFFECTIVE DATE. This ordinance shall take effect on October 5, 1992. PART F. ADOPTION. After Motion by Councilman Jones and Second by Councilperson Gillespie, the vote on the first reading of this ordinance held on February 24, 1992, was as follows: Mayor Tanya H. Wessler AYE Councilman Kirk Jones AYE 9%�13.hl thwa g h passages are deleted. Underlined passages are added. 2 Councilperson Louise Martin AYE Councilperson NoraJane Gillespie AYE Councilman Michael Hays AYE After Motion by Councilman Hays and Second by Councilperson Gillespie, the vote on the second reading of this ordinance was as follows: Mayor Tanya B. Wessler AYE Councilman Kirk Jones EXCUSED Councilperson Louise Martin AYE Councilperson NoraJane Gillespie AYE Councilman Michael Hays AYE PASSED AND DULY ADOPTED this 5th day of October, 1992. CITY COUNCIL OF THE CITY OF EDGEWATER, FLORIDA qz Tanya . Wessler Mayor APPROVED FOR FORM AND CORRECTNESS: 7 )Krist& A:-Stor4& City Attorney Neagh passages are deleted. Underlined passages are added. 3 CITY OF EDGE - ATER EXH I B I T B DWIBIT B CITY OF EDGEWATER COMPREHENSIVE PLAN HOUSING ELEMENT Prepared for: City of Edgewater P. 0. Box 100 Edgewater, Florida 32132 Prepared by: Strategic Planning Group, Inc. 6622 Southpoint Drive South Jacksonville, Florida 32216 Preparation of this Element was aided through financial assistance received from the State of Florida under the Local Government Comprehensive Planning Assistance Program authorized by Chapter 86-167, Laws of Florida and administered by the Florida Department of Community Affairs. CITY OF EDGEWATER HOUSING ELEMENT TABLE OF CONTENTS IT PAGE INTRODUCTION 1 HOUSING CHARACTERISTICS 1 HOUSING AFFORDABILITY 4 SPECIAL HOUSING GROUPS 6 HOUSING DEVELOPMENT SINCE 1980 8 RESIDENTIAL LAND ABSORPTION AND AVAILABILITY 9 VACANT SINGLE FAMILY LAND 10 VACANT MULTIFAMILY RESIDENTIAL 11 VACANT MOBILE HOME DISTRICTS 12 RESIDENTIAL LAND AVAILABILITY AND RESIDENTIAL LAND ABSORPTION RELATIONSHIPS 12 MOBILE HOMES 13 INFILL HOUSING DEVELOPMENT 15 SITES FOR GROUP HOMES 17 ELDERLY ORIENTED GROUP HOMES 17 SPECIALIZED CONGREGATE LIVING FACILITIES/ GROUP HOMES 19 EMERGENCY GROUP HOME FACILITIES 22 CONGREGATE LIVING FACILITIES/ GROUP HOMES: CONCLUSIONS 22 SUPPORTIVE HOUSING PROGRAMS FOR THE ELDERLY 22 HOUSING FOR THE HANDICAPPED 26 ADEQUATE HOUSING FOR LOW AND MODERATE INCOME GROUPS 26 CREATION OF A COUNTY AUTHORITY AND HOUSING FINANCE AUTHORITY 27 i CITY OF EDGEVVIMR TABLE OF CONTENTS ITEM PAGE HOUSING DEVELOPMENT GRANT PROGRAM 27 MODULAR HOUSING TASK FORCE 27 THE VOLUSIA COUNTY HOUSING ASSISTANCE PROGRAM 28 THE PRIVATE SECTOR HOUSING DELIVERY PROCESS: REMOVING IMPEDIMENTS 28 GOALS, OBJECTIVES AND POLICIES Introduction 30 Relationship to the Florida Comprehensive Policy Plan 30 Relationship to the East Central Florida (District 6) Policy Plan 30 City of Edgewater's Housing Goals, Objectives, and Policies 32 HOUSING REQUIREMENTS Median Household Income and Income Distribution 36 Projected Housing Needs 36 Short Term Housing Needs: 1987-1995 36 Long Term Housing Needs: 1995-2000 37 Replacement of Substandard Units 37 EVALUATION AND APPRAISAL OF CURRENT HOUSING 65 Comments 65 CHECKLIST 66 TABLES (NOTE: All Tables are presented following page 38) 1 Characteristics of Year -Round Housing Units: 1980 39 2 Age of Year -Round Housing: 1980 39 3 Availability of Facilities in Housing Units: 1980 40 4 Overcrowded Housing Conditions: 1980 40 5 Housing Conditions: 1979 and 1987 41 6 Percentage of Household Income of Homeowners Spent for Housing, by Income Groups: 1979 41 11 CITY OF EDGEWATER 7 Value of Specified Owner -Occupied Housing: 1980 43 8 Average Monthly Gross Rental Rates: 1980 44 9 Percentage of Household Income of Renters Spent for Housing, by Income Groups: 1979 44 10 Rural Rental Housing (SEC 515) Units in Operation: 1987 46 11 Mobile/Recreational Vehicle Parks: 1987 47 12 Florida Master Site File (FMSF) of Historical/Archaeological Sites 49 13 Residential Unit Building Permit Activity by Housing Type: 1980-1986 50 14 Residential Unit Building Permit Activity by Housing Type: January - June, 1987 51 15 Shares of Residential Land Uses: 1979 and 1987 52 16 Residential Land Use Absorption: 1979 - 1987 52 17 Vacant Land by Residential Zoning Category: June, 1987 53 18 Distribution of Vacant Residential Land: 1987 54 19 General Locational Criteria for Mobile Home Developments and Urban Services 55 20 Congregate Living Facilities/ Group Homes (Elderly Oriented Facilities) and Land use Plan Designations 57 21 Land Use Plan Designations for Developmentally/Physically Disabled and Halfway Houses 58 22 Congregate Living Facilities/Group Homes (Foster Care Homes for Children) and Land Use Plan Designations 59 iii CITY OF EDGEWATER 23 Projections of Residential Households by Income Group, Selected Years: 1979 - 2000 60 24 Projected Housing Needs by Housing Type and Income Group: 1990 61 iii 25 Projected Housing Needs by Housing Type and Income Group: 1995 62 26 Projected Housing Needs by Housing Type and Income Group: 2000 63 27 Projected Housing Needs by Housing Type and Tenure: 1995 - 2000 64 FIGURES 1 Existing Housing Conditions 70 CITY OF EDGEWATER EXISTING HOUSING DATA One of society's most basic needs is shelter. How we, as a society, preserve the housing stock we have and how we plan to accommodate our future housing needs reflects upon the quality of life we enjoy or want to enjoy. It is important to consider where we locate new residential areas, for this decision will drive the determination as to where public infrastructure (roads, utilities, parks and schools) will be located. This study provides a detailed inventory and analysis of the existing housing stock, assesses the needs of the community, and puts forth a strategy to implement Edgewater's housing goals. This element is also intended to provide City officials and the general public with the information necessary to guide housing growth in the direction that best addresses the desires of not only Edgewater's existing and anticipated residents, but those with special housing needs as well. The Housing Element for Edgewater is subdivided into three main areas: An inventory of the existing housing stock; An in-depth analysis of the existing condition of the City's housing, housing delivery process and residential neighborhoods to determine if any problems exist or can be expected; and A set of implementation policies designed to provide for the efficient delivery of housing and to resolve any problems identified during the course of the study. HOUSING CHARACTERISTICS This section deals with the characteristics and conditions of the existing housing stock in the City. The primary source of statistical information was the 1980 Census of Population and Housing. Information provided by the City's Building Department regarding building permits and demolition permits issued since April 1, 1980 (the date that the last U.S. Census was taken) has been used to update certain data. The Bureau of Economic and Business Research (BEBR) has also provided relevant information to aid in the updating process. Finally, in July of 1987, the City's Planning Department conducted a land use and housing conditions survey to locate and determine the current status of all residences in the community. CITY OF EDGEWATER Housing Units by Type, Tenure and Occupancy Status In 1980, as shown in Table 1, there were 3,036 year-round housing units in Edgewater, of which 83.2 percent were single-family homes. Slightly more than six percent were multifamily dwellings. About ten percent of the City's residences were mobile homes in 1980. Of the City's 2,729 occupied units, 2,327, or 85.3 percent were owner -occupied; 402 units, or 14.7 percent were renter -occupied. By comparison, 57.4 percent of all units were owner -occupied in Volusia County, while the figure was more than 68 percent state wide. All of these figures are for 1980. Because there are so few blacks living in Edgewater, most of the Census data for these households were suppressed. Therefore, the discussion of housing conditions for Edgewater will deal only with the total population. No breakdown of conditions and characteristics by race will be made. Year -Round and Seasonal or Transient Housing A complete analysis of existing and projected seasonal housing has been made in the Population Estimates and Projections section of this planning study. However, to present a complete picture of Edgewater's existing housing stock, some of the more important data will also be included in this Housing Element. It is estimated that there were 188 occupied seasonal dwelling units in the City in 1980; by 1986, this figure had grown to about 220 homes. The seasonal population in 1980 was estimated to be approximately 460 people. This number increased to about 520 in 1986. As can be seen from these numbers, seasonal housing does not consitute a major part of Edgewater's housing stock. Vacancy Characteristics At the time of the. 1980 U.S. Census, about ten percent of the City's housing was found to be vacant. This figure compared favorably with that of Volusia County, where almost 13 percent of its housing was vacant, and with the State of Florida, where vacant housing accounted for approximately 12.5 percent of all dwelling units. The problem with using U.S. Census data to analyze vacancy characteristics (aside from the fact that it is more than seven years old), is that it presents the occupancy status of housing for one fixed date: April 1, 1980. Whether or not most of these units were sold or rented a month later and have stayed occupied ever since is of no concern to CITY OF EDGEWATER the U.S. Census. This is not to find fault with the Census data, but merely to point out that it is not truly relevant in providing a true picture of the vacancy status in any community. A large portion of Edgewater's housing stock consists of single family homes and these have not been built on a speculative basis. Futhermore, the housing conditon survey conducted in July of 1987 revealed few vacant units. The mid -year 1987 occupancy rate is considered to be approximately 96 percent. Age of Housing Table 2 indicates the age of Edgewater's year-round housing stock in 1980. More than 54 percent of the community's dwelling units were constructed between 1970 and 1980. The implications of the fact that over half of the units are less than 20 years old are that the quality of housing is bound to be relatively high, as they have been built in accordance with demanding building codes, and that the value of these homes are relatively high. This situation also has meant that, while rehabilitation activities will be important, they will not be as critical as in communities with older housing supplies. Condition of Housing The quality of Edgewater's housing stock in 1980 is presented in Table 3. The criteria used to evaluate housing quality are those employed by the U.S. Bureau of the Census. Measures such as the lack of complete bathroom facilities, kitchens or heating equipment, the lack of a water system or means of disposing of sewage are all indicators of substandard housing conditions. Generally, the quality of housing in the City is high. All units had a complete private bath; only about one percent did not have a complete kitchen or heating equipment. Approximately 87 percent of all units were served with air conditioning. Overcrowding is also an indicator of substandard housing. According to the U.S. Bureau of the Census, a substandard condition exists if there are more than 1.01 persons per room living in a dwelling unit. In making these computations, a "room" is defined as a living room, dining room, kitchen, bedroom, finished recreation room, or enclosed porch suitable for year-round use. Excluded are bathrooms, open porches, balconies, halls and utility rooms. Table 4 shows that only 59 dwelling units, or 2.2 percent of the occupied homes in Edgewater are considered to be overcrowded. CITY OF EDGEWATER The statistics presented above tell only part of the story insofar as housing quality at Edgewater is concerned. The physical condition of the homes, where major rehabilitation efforts are needed, must be analyzed to present a complete picture of housing in the community. Because housing conditions can change from year to year, visual inspections must be conducted periodically to effectively monitor the status of dwelling unit quality. To this end, a housing survey was conducted in July of 1987. The results of this survey are presented in Table 5. For comparison, the 1979 survey results are also included in this table. It should be noted, however, that the same person did not,evaluate the housing conditions in both surveys; therefore, while these data are useful in analyzing the progress of housing quality, it must be recognized that two different people who will necessarily have differing values rated the condition of the homes. In the 1987 survey, housing was rates as being in either "good," "fair" or "poor" condition. "Good" housing was that which appeared to provide safe shelter and that there were either no defects or only slight defects which could be corrected during the course of regular maintenance. Housing classified as being in "fair" condition appeared to provide safe and adequate shelter, but required more than routine repairs and improvements. "Poor" housing did not provide safe and adequate shelter and was, in some cases, hazardous. Considerable repair or even possibly demolition might be necessary. The field survey results indicate that the current housing stock in Edgewater is in good condition. This is due, in part, to the fact that the housing quality was good eight years ago and that the homeowners have largely maintained this high degree of quality. The fact that a substantial number of new homes have been built during the past eight years has also had its role to play in maintaining high housing quality levels. Although the presence of any dwelling units that are in a dilapidated condition are a cause for concern, the low percent of these in Edgewater is a reasonable figure and probably significantly lower than for most small cities in the nation. What is of greater concern is the number of units that are deteriorating. Unless measures are taken to arrest this decline in quality, they could quickly slide into a dilapidated condition and eventually require clearance. HOUSING AFFORDABILITY A. Owner -Occupied Dwelling Units Across the State of Florida, housing affordability is becoming an increasingly serious problem. The State CITY OF EDGEWATER Department of Community Affairs (DCA) estimates that as many as two million Floridians face critical housing problems associated with unaffordable or substandard dwelling units. It is one thing to say that the deteriorating housing stock in Edgewater must be brought up to minimum building code standards. But, if the people living in these homes and apartments cannot afford to make any improvements, how will this happen? And, who will make these improvements? It is estimated that 84 percent, or 223,000 of the lowest income renter households in Florida spend more than 35 percent of their income for rent. Additionally, approximately 265,000 low and moderate income home owners pay more than 35 percent of their income for home ownership expenses. The generally accepted standard for determining housing affordability in 1980 was that housing costs should not exceed 25 percent of family income. By 1987, this figure had been raised to 30 percent. These costs include the principle and interest payments on a mortgage, plus taxes and insurance. Owner Market In 1980, 2,327 dwelling units, or more than 85 percent of all occupied units in the City, were owner -occupied. Using the standard of 25 percent of family income, as was deemed acceptable in 1980, many of the community's home owners were making monthly payments in excess of this figure. Table 6 shows that, of the 1,944 homeowners analyzed in 1980, 644, or 33.1 percent paid more than 25 percent of their income on housing. Of those earning less than $10,000 per year, 59.1 percent, or 401 households had to allocate more than 25 percent of their income for housing costs. The fact is that individuals and families at the lower end of the economic spectrum must pay more for their housing. And, in Edgewater, where housing costs can be expected to continue to rise as more and more of the land becomes used up, this problem will grow. Another reason for the anticipated continued growth of this problem is that tourism is expected to grow and take a dominant role in the overall Volusia County economy. While this is obviously a positive step in the growth and development of the area, many of the service -oriented jobs that are generate in this type of economy are basically minimum -wage employment. The median value of owner -occupied dwelling units in 1980 was $36,700, slightly lower than that for the Daytona Beach Metropolitan Statistical Area's figure of $39,900. CITY OF EDGEWATER Table 7, which allocates these units into various ranges, shows that the City had a reasonably even distribution of housing in most price ranges. C. Renter -Occupied Dwelling Units In 1980, one-third of all of Florida's residents lived in rental units, according to studies conducted by DCA. The 1980 Census revealed that in Edgewater, 402 units, or 14.7 percent of all occupied housing, were rental accommodations. Because the rental market constitutes a significant component of the total housing picture both in the State and Edgewater, the issue of affordability is as important in this sector as it is for owner -occupied housing. D. Rental Market The range of monthly gross rents paid by households in 1980 is presented in Table S. Gross rent is defined as the contract rent plus an estimated monthly cost for utilities. In 1980, the median monthly gross rent in Edgewater was $238, slightly less than the Daytona Beach Metropolitan Statistical Area's figure of $254. Of the 402 units tabulated, 226, or 56.2 percent fell within the $200-$399 rental range. Two percent of the rental stock had rent levels below $100 a month. The situation regarding lower income renters spending higher proportions of their earnings for housing is even more serious than for low income home owners, as can be seen in Table 9. Nearly 93 percent of the renters in Edgewater earning less. than $10,000 spent more than 35 percent of their income for housing accommodations. As this figure is significantly higher than the statewide 84 percent, it indicates an obvious problem of affordable rental housing for lower income households. SPECIAL HOUSING TYPES To provide a complete overview of the City of Edgewater's Housing Inventory, an assessment of a wide range of special housing types must be made. As there are no group homes in Edgewater, the following brief discussion will include government subsidized rental housing, mobile homes, and historically significant housing. Government Subsidized Housing Section 8 has been the major federal housing program of the 1970s and 1980s. The program received its name from the Housing and Community Development Act of 1974, which CITY OF EDGEWATER created this new leased -housing program. Under Section 8 of the Act, low and moderate income families pay up to 30 percent of their income for rent, and the federal government (Department of Housing and Urban Development) pays the difference between that amount and market rent. Within Section 8 are a variety of other activities, the largest being the certificate program. Currently, 30,000 Florida households participate in the certificate program. It should be noted that because of recent federal budget cutbacks, fewer Section 8 funds are available. There is, however, one facility receiving rural rental assistance under the Section 515 program of the same Housing and Community Development Act of 1974. That facility, Edgewater Park Apartments, has 35 units, is fully occupied, and has a waiting list. Further details are provided in Table 10. Section 515 subsidizes rental apartment complexes in rural areas for low and moderate income families. The facilities must be located in areas with population of 10,000 persons or less, modestly designed, and within walking distance of churches, schools and other public facilities and community centers. The program provides funding of up to 95 percent of the total developments cost or appraisal value, (whichever is less). The developer pays the remaining five percent. Facilities receiving "interest credit" subsidies make payments based on one or three percent interest rates with loan terms of up to 50 years. H. Mobile Home Parks Approximately nine percent of the existing housing stock in the City of Edgewater are mobile homes. There are ten state licensed mobile home parks within City limits, as surveyed by the Florida Department of Health and Rehabilitative Services (HRS). These parks, listed in Table 11, contain 556 mobile spaces. Eight of the ten parks responded in a telephone survey that, combined with HRS' information, helped to establish the following general characteristics: (1) nine of the ten parks are located on Ridgewood Avenue (US1); (2) all the parks are operating at or near capacity, leaving about six vacant spaces in the City; (3) they are tied into the City's water and sewer systems; and (4) six of the parks lease the pads to tenants that own their mobile homes while three of these six also have a few homes for rent and one offers homes for sale. It should be noted that of the two parks that sell the pads, one of them, Pyramid Park Corporation, sells shares of the corporation; therefore, tenants buy a percentage of the corporation that entitle them to pads. Pez Adult Mobile Home Park is only available for persons 35 years or older. In the process CITY OF EDGEWATER of construction is another mobile home park, Mango Tree Estates, that will offer 51 spaces for rent. This park will also be tied to the City's water and sewer systems. The fact that the existing parks are operating at capacity if just one clue as to the present need for housing in this price range. Mango Tree Estates will satisfy only a small portion of this need. However, it must be remembered that mobile homes are not big revenue contributors since they usually can take full homestead exemptions. Other types of housing projects may offer the city a more financially beneficial solution to low income housing. C. Historic Housing At present, there are no sites in the City of Edgewater listed in the National Register of Historic Places. Since a professional historic survey of the area has not been made, the Division of Historical Resources of the Florida Department of State cautions that the historic potential of this area may not be adequately represented. The Division maintains a central archive for Florida's historical and archaeological sites known as the Florida Master Site File (FMSF). This is an inventory of "reported" sites, and thus the sites listed may not actually be of historical significance. Also, since these sites have been verbally reported, the locations may not be accurate. Currently, there are four reported sites in the City of Edgewater listed on the FMSF which are presented on Table 12. In addition to the sites on the Florida Master Site File, local officials have recently undertaken a survey of historically significnat housing in the community. Most of these homes are along Edgewater's waterfront, as is to be expected. The earliest settlers typically built their homes near the water, as this afforded them a site close to a source of food, as well as a primary source of transportation. The oldest home is located immediately north of City Hall. It was built by Dr. Hawks, the founder of Edgewater, in the 18601s. HOUSING DEVELOPMENT SINCE 1980 A. Units Permitted From 1980 to 1987 building permits were issued for 3,092 residential units. Permit information provides a gauge of housing construction activity and should not be used as a precise representation of the numbers of units added to CITY OF EDGEWATER the housing supply, as some units permitted may never be built or may not be completed for several months or even years. Table 13 presents information on the type of units constructed. It indicates that, for the period 1980-1986, over 65 percent of the permits issued (1,916 units) were for construction of single-family residential units. Since 1980, mobile home permit issues have declined. From 1980 to 1962 over five percent of the total permits issued each year were for mobile homes. However, this percentage dropped to about one percent in 1983, and has since remained below one percent of total unit permits issued each year. The majority of the residential units permitted for the first six months of 1987 have been single-family units (see Table 14). Of the 162 units permitted from January to June of 1987, approximately 93 percent (151 permits) have been single-family homes, six percent (10 permits) have .been for multifamily units and only one permit has been issued for a mobile home. B. Housing Costs Edgewater single-family home sale prices are currently averaging about $68,000. Information from major Realtors in the City indicates prices ranged from $28,000 to $395,000 (one home listed at this price) in 1987. The lower priced homes are scattered around the City (except in the Florida shores area), while the higher priced homes are generally located on waterfront property overlooking the Intracoastal Waterway. There are currently about 200 homes listed in the Multiple Listing Service (MLS), and although Edgewater is the second fastest growing city in Volusia County, the real estate market is still a "buyer's" market. Analysis of the real estate activity for the period from June 1986 to July 1987, helped establish an average sale price for the 95 homes sold in that period at $57,713. This represents a difference between the average list and average sale price of about $10,000. An interesting area of the City is the southwest section, where the Florida Shores subdivision is located. This major community has an average home sale price of about $55,000 and is now in its last five years of development. RESIDENTIAL LAND ABSORPTION AND AVAILABILITY A total of 340 acres of residential land was absorbed in Edgewater between 1979 (when the last land use inventory was CITY OF EDGEWATER performed) and 1987. This averages out to an annual residential acreage absorption of 42.5 acres per year. Much of the residential land absorption was devoted to single family homes. The land use data from the 1979 and 1987 inventories clearly indicates thatsingle family detached housing has been the overwhelming choice of Edgewater residents. This is confirmed by the fact that 80 percent of the residential land consumption during the 1979-87 was for single family homes. Single family residences accounted for 274 acres between 1979 and 1987, which amounted to over 34 acres on an average annual basis. Absorption of land for multifamily residences in Edgewater during the 1979-1987 period totalled 54 acres, comprising 16 percent of all new residential land developed. The average annual absorption for multifamily housing was about 7 acres per year. While this housing type is the choice of a rather small percentage of Edgewater residents it is having a larger role in the housing mix in terms of land area for multifamily housing, growing from 1.8 percent in 1979 to 6.7 percent in 1987 (see Table 15). Multifamily residential uses in terms of land area, became the second largest residential use by 1987, exceeding mobile homes (see Table 16). Mobile homes have traditionally been a large segment of the residential product market in Edgewater. However, the importance of this segment in Edgewater's housing mix is declining. Mobile homes amounted to only 4 percent of the total residential land absorption between 1979 and 1987. Its share of the total residential land declined from 6.6 percent in 1979 to 5.6 percent in 1987. Most of the vacant land available for housing is currently zoned into seven different single family residential zoning districts. The total vacant acreage in the single family residential districts is 1,334.57 acres, or 78 percent of the total vacant residentially zoned land (see Table 17). VACANT SINGLE FAMILY LAND Much of the single family zoned land is concentrated in the R-2B district. This district is oriented toward moderate size units with a minimum lot size of 10,000 square feet. This zone is found primarily in the Florida Shores subdivision, which was initially platted in the 195015. This subdivision will play a dominant role in the future residential development of the City. It is roughly 60 percent developed, and therefore, infill development could become a major residential issue in the future. However, the issue of infill development is different in the case of the Florida Shores in that many lots have been sold to households from other sections of the country who may be retiring in the near future. 10 CITY OF EDGEWATER Florida Shores comprises almost all of the western, central, and southwest portions of Edgewater. It extends from 12th Street on the north and northwest to the corporate limits to the south and southwest, and from India Palm Drive and one block west of Hibiscus Drive to the east, to the City limits on the west. Another large amount of vacant acreage is located within the R-SB District, which is also part of Florida Shores. This area accounted for approximately 127 acres, or more than 7 percent of all vacant residential land. This district is also characterized by moderate size units with a minimum lot size of 10,000 square feet. It extends from 17th Street on the north to 20th Street on the south, and generally one-half block west of Hibiscus on the east, to the City limits on the west. The other two single family districts containing substantial amounts of vacant acreage are the R-1 and R-3 zones. The R-1 district has almost 158 vacant acres, or just over 9 percent of all vacant residential land. Much of this acreage is located on the southeast border of the City, east of South Ridgewood Avenue (U.S. 1) and just west of South Ridgewood Avenue in the southeast quadrant of Edgewater. Since so much of the R-1 zoning borders on much of unincorporated Volusia County, it is conceivable that it could be extended if the City decides to annex these "enclave" areas. The R-1 zone is oriented toward larger residences with a 12,000 square foot minimum lot size. The R-3 district has almost 82 vacant acres or roughly 5 percent of all residential land. This zone acts as a transition between the lower density R-lA district located along the Intracoastal Waterway and the B-3 a commercial area located on the east side of Ridgewood Avenue. All the land in this district has been Platted. This area has been developed in a piecemeal fashion; therefore, infill development will be a future issue. The R-3 district is characterized by relatively small units with a minimum lot size of 8,625 square feet. VACANT MULTI FAMILY LAND There are about 328 vacant acres located in the R-4, R-5, and R-5A districts. Vacant zoned multifamily land comprised 21 percent of the total undeveloped residential land in 1987 (see Table 18). All but 35 acres were located in the R-4 district. This vacant acreage was concentrated in three principle areas of the City, with the majority located in the Edgewater Estates subdivision.. Another area of vacant R-4 land is located in the vicinity of Cocoa Palm Drive and 20th Street in the south central Portion of the City. There is also some vacant R-4 land located south and east of the Volusia County Elementary School. The R-4 district is oriented to medium and small residences and allows a maximum 35 percent lot coverage with a minimum lot size of 8,250 square feet. 11 CITY OF EDGEWATER VACANT MOBILE HOME DISTRICTS A part of the reason for a shift away from mobile home development as a housing choice may be explained by the fact that much of the zoned land for this type of residential use has been used up in Edgewater. Approximately 150 vacant acres remain for mobile homes in the City. However, 139 of these acres are contained within the MH-2 zone which requires a minimum project area size of 50 acres. Almost 12 acres is vacant in the MH-1 district. This acreage is located in close proximity to industrial uses and the I-1 district in the northwest sector of the City. The MH-1 district permits mobile homes located in a mobile home park with a minimum total of five acres for the entire project. It has a minimum lot size of 5,000 square feet. It appears that this rather small amount of vacant zoned land will not provide future Edgewater households with any real opportunity to select this housing type. Therefore, it appears likely that additional land will have to be designated for mobile homes in the future if the City wishes to continue to permit this housing type. Because so much of the land is committed for various residential land uses, the City may have to consider annexing unincorporated land for this, as well as other types of development. RESIDENTIAL LAND AVAILABILTIY AND RESIDENTIAL LAND ABSORPTION RELATIONSHIPS Even without considering annexation, sufficient vacant residential land exists to accommodate Edgewater's anticipated future residential growth for the next 30 years. This 30 year period has been calculated by taking the total vacant zone residential, (1,334.57 / annual average residential land absorption) for the most recent eight year period of 1979-1987 (42.55). A theoretical building out of the City could be expected to occur around the year 2020. While sufficient residential land remains to accommodate future residential growth, a major imbalance would exist, based on the type of vacant residential zoned land: single-family, multifamily, and mobile homes. A high proportion of land has been allocated to single family and multifamily housing, as compared with almost no land being available for future mobile home development. The land use plan and, ultimately, the zoning ordinance will need to consider this imbalance by possibly allocating more land for mobile home uses. While a considerable amount of vacant land is currently available for multifamily residential uses, this may very well be needed in the future. A part of the demand could come from the "aging" of the Edgewater resident population and 12 CITY OF EDGEWATER the need to provide for different housing choices such as "life -care" and Adult Congregate Living Facilities. Therefore, any reallocation of residential land should consider a reorientation from traditional single family zoned land to mobile homes and somewhat less for multifamily residential areas. Changes in land use plan designations and, ultimately, zoning changes can sometimes be more fluid for a city during the stage in its development cycle where it is 50 percent vacant. Such is the case in Edgewater today. A balance of residential uses should be considered as well as a mix of other land uses, such as commercial, industrial, recreational and public. Therefore, all land uses will have to compete for increasingly scarce acreage as Edgewater develops. This composition may be especially acute between residential and commercial uses. As the population increases there is a demand for not only more neighborhood or convenient oriented uses, but also for a higher level or greater variety in the types of stores such as community shopping facilities. Additionally, as the City matures, vacant land becomes scarce and therefore more expensive. This process often makes developing residential land more difficult, especially in transition areas, as "development economics" makes residential development increasingly less profitable. This, in turn, often forces land owners to seek zoning changes from residential to commercial uses. The 1981 Edgewater Comprehensive Plan failed to anticipate the impending shortage of land needed to accommodate mobile home units. Rule 9J-5 requires that policies be developed which ensure adequate sites for mobile homes. Earlier in this Housing Element, it was revealed that insufficient vacant land remains for the projected mobile home demand. Mobile homes and mobile home developments have long had a reputation of being visually unattractive. Often, localities have had the tendency to regulate these housing types to undesirable areas of the community, such as adjacent to industrial areas and railroad tracks and areas which lack utilities or community facilities. Mobile homes were rarely allowed or encouraged in areas well -suited for residential development. However, as the cost of single family dwellings has gone beyond the reach of many households, communities have started to change their local decision making process regarding the location of mobile homes. Rule 9J-5 requirements will also alter local governments' traditional decision making process regarding mobile homes. In consideration of these factors the following general criteria have been provided for the designation of future mobile home or manufactured home developments. A. Locational Criteria for Future Mobile Home Development 13 CITY OF EDGEWATER Mobile home parks should be located adjacent to areas with a comparable density of development or near small scale convenience or neighborhood commercial activity. The traditional practice of locating mobile homes adjacent to industrial or highway commercial uses should no longer be followed. Specifically, the following general locational guidelines should be followed regarding the designation of future mobile home development sites: They should be located in areas of compatible land use; They should be in areas accessible to arterial and collector roads; They should also be located on sites presently served by public water or sanitary sewer service, or in areas programmed for such service in the City's five year capital improvements program; They should be located within reasonable proximity to community facilities (see Table 19 for distances in driving times from commercial and public facilities); They should also be located near residential areas where densities are similar; densities in the range of five to eight units per acre are recommended, provided the developments are well designed; Mobile homes should be located in areas of the logical extension of existing urban growth pattern; and Where mobile home development or individual mobile homes are designated to be located adjacent to residential uses, especially those of lower densities, buffer areas should be required to make the transition in density more compatible to the general neighborhood and community. In addition to these general provisions, the issue of improving existing substandard mobile home developments should be addressed. These areas should be upgraded to modern mobile home planning and design requirements. 14 CITY OF EDGEWATER INFILL HOUSING DEVELOPMENT Earlier in this report, there was an analysis made of the current vacant residential land supply in Edgewater. It noted the significant role that Florida Shores will play in the future residential development of Edgewater. It also noted that this subdivision was platted and partially developed. However, many lots and blocks in the subdivision are still vacant. Many other smaller subdivisions in Edgewater are in a similar situation. The potential infill housing situation in Edgewater is somewhat different than in most other cities. Traditionally, infill housing has occurred in areas which were close to residential "build -out" with at least 90 percent of its residential land already developed. This traditional type of infill evolved with a small number of vacant parcels which were bypassed during the normal course of urbanization. In this process, individual lots or small clusters of lots remained vacant due to odd shapes, poor access, ownership problems, changes in zoning and subdivision regulations requirements, conflicts with surrounding land uses, or land damage by some pre -urban use (such as land fill sites, dumping areas, wrecking yards, etc.). Many of the vacant lots in Florida Shores have been purchased by households nearing retirement age. Many of these families have heads of households who work in "old line" basic manufacturing industries. Therefore, the pace of future infill housing is, and will continue to be related to the general economic health of these basic industries. If these industries are threatened with financial problems or have to cut back or eliminate their retirement programs, then this could reduce the number of households who actually build in Florida Shores, as well as other subdivisions in Edgewater. This could result in a large number of vacant lots remaining undeveloped. Therefore, any infill housing strategy and program designed for Edgewater should be developed on a contingency basis. This strategy would be implemented only if the scenario described above actually transpired. The Importance of Potential Infill Housing Problems Generally, infill housing issues have been considered to be relatively minor when compared to substandard housing and housing affordability. However, vacant or "passed over" land parcels can contribute to neighborhood decline and blight. This often leads to public safety and health issues as vacant lots can remain unattended for long periods by absentee land owners. Such neglect often manifests itself visually in vacant areas with overgrown weeds and debris. Vacant lots often become 15 CITY OF EDGEWATER magnets for the dumping of worn out furniture, appliances and automobile parts. This often leads to rodent infestation and creates serious public health problems. Large numbers of "passed over" parcels can often lead to lower market and assessed values for adjacent developed residential properties. It may often lower property values in entire neighborhoods where large numbers of vacant parcels exist. Therefore, it is important for Edgewater to develop strategies and programs which encourage the filling in of these vacant residential parcels with new housing. A set of contingency strategies and programs is described in the following section as this becomes a housing issue to be dealt with by the community. B. Infill Housing Strategies and Programs The following implementation programs are considered important in developing a successful infill housing program strategy: Develop a monitoring program which tracks building permits, certificates of occupancy and vacant land by subdivision and other geographic areas. CON A CONTINGENCY BASIS] - Develop a vacant residential use parcel system utilizing, if possible, the Volusia County Property Assessors Office as a base. Such a system should include the size, location, physical characteristics, utilities, zoning, and ownership data. Inventory infrastructure conditions(i.e., the presence of public water and sewer facilities) serving vacant residential sites for adequacy. Review the zoning ordinance as it relates to the marketability of vacant residential parcels. Develop an "outreach" program targeted toward realtors, developers, architects and builders, as well as neighborhood groups, on infill housing opportunities in Edgewater. Create a system of "density bonuses" in selected 16 CITY OF EDGEWATER areas to attract infill housing. Publicly fund minor off -site capital improvements (minor street and utility extensions or upgrading). SITES FOR GROUP HOMES The 1980 Census and housing inventory indicated the absence of any group homes in Edgewater. The future housing needs analysis presented within this Element revealed a need to provide living accommodations for between 250 and 350 elderly persons within a group home setting by the year 2000 to accommodate the needs for this growing segment of the population. ELDERLY ORIENTED GROUP HOMES There are a number of different types which have emerged within the last ten years to serve the elderly population in a group setting. The two major types are generally divided into life -care communities (also known as continuing care retirement communities, or CCRC's) and Adult Congregate Living Facilities (ACLF's). After reviewing the ten year housing need for Edgewater and the type of housing product typically offered by life -care communities, this does not appear to be appropriate for Edgewater. This recommendation is based on several reasons. The first is that life -care communities are generally larger scale developments with a minimum of 150 units and a minimum density of 10 to 15 units per acre. This scale development would not appear to be compatible with the low density character of Edgewater. Additionally, this development type could prove to severely strain existing services within the community. Another form of service -oriented housing for the elderly are the ACLF's, also k own as elderly group care homes. This newer version of senior adult congregate living is a much smaller scale development than life -care and generally does not have medical facilities on the premises. It often includes units without kitchens for individuals needing help dressing, bathing or eating. Such facilities often contain one -bedroom units and are targeted toward middle -income groups (ranging between $15,000-$24,000 per year). Recent trends in this type of housing also include double -sized one -bedroom units for couples, as well as some double -sized two -bedroom units. Areas within the facility are designated for different congregate or common functions, such as meeting area, dining room, library, etc. 17 CITY OF EDGEWATER These congregate living facilities can basically be divided into four ranges of density: _ GROUP "A" HOMES: low intensity - a maximum of eight residents and one resident staff. _ GROUP "B" HOMES: low medium intensity - a maximum of twelve residents and one resident staff. _ GROUP "C" HOMES: medium intensity - a maximum of twenty residents and two resident staff. GROUP "D" HOMES: high intensity - maximum of fifty residents and three resident staff. A. Locational Criteria Florida Statutes (163.3177 and Chapters 80-54 and 9J-5.010) now mandate that standards and criteria be developed that enable congregate living and group homes to be located in residential areas. Therefore, for the City of Edgewater to be able to meet state law requirements, the following general locational criteria provisions are as follows: Elderly congregate living facilities or group homes should be located in areas that are essentially residential in character with close proximity (15 minute driving or response time) to hospitals, emergency medical units, neighborhood shopping, public transportation services, restaurants, banking, and other essential commercial services. In addition to be located near essential medical and basic commercial services, congregate facilities and group homes should be located within reasonable proximity to local cultural, educational, entertainment facilities, and community and regional commercial activities. Also, such specialized housing should be located where residents can easily be served by specialized demand oriented transportation services such as "Dial -A -Ride" programs. _ The most desirable residential areas for the location of congregate facilities or group homes are those residential areas containing a mix of W., CITY OF EDGEWATER housing types. Often these are transitional areas between commercial facilities and single family residences. Areas in Edgewater which fall into this category are located between highway commercial uses on Ridgewood Avenue and single family subdivisions such as Florida Shores. The intensity of adult and elderly congregate living facilities or group homes should be compatible with intensity or density of the general area. Congregate living facilities and group homes can be located in predominantly commercial areas if the adjacent uses are compatible, sufficient buffers are provided, pedestrian networks are in place, or will be provided, and sufficient capacity exists in the adjacent road network. Additional yard requirements and special buffering/screening provisions should be adopted in the land development code whenever congregate living facilities and group homes are located adjacent to single family residences. B. Elderly Congregate Living Facilities (Group Homes) and General Land Use Plan Designations Table 20 specifies the four different intensity ranges and categories of group homes within general land use categories. Detailed specifics in terms of uses permitted by right versus conditional uses and special exceptions in the elderly congregate living/group home approval process (public hearings versus administrative review). The basic approach is one that allows Group "A" and "B" homes in some single family areas and all multifamily areas. Group "C" and "D" homes will be allowed in the higher density multifamily areas as well as the two less intensive commercial areas -neighborhood and office. The more intense facilities, Groups "C" and "D" would not be permitted in the more intense commercial areas were in industrial areas. SPECIALIZED CONGREGATE LIVING FACILITIES/GROUP HOMES In addition to congregate living facilities/group homes for the elderly, there are two other major broad categories of group homes: (1) group homes for the 19 CITY OF EDGEWATER physically and developmentally disabled and (2) "halfway houses". The future need for these types of facilities are harder to forecast than the congregate living facilities for the elderly. However, provisions for these types of group housing must be included in the housing element. These types will be discussed below. A. Group Homes for the Developmentally and Physically Disabled This is a broad category that includes housing for the physically handicapped or disabled as well as those individuals with mental limitations and disabilities. The principal difference between this classification of congregate living facilities and those for elderly residents (aside from the obvious difference of type of resident) is one of scale. Group homes for the physically disabled and developmentally disabled generally house fewer residents than the homes for the elderly. They also tend to occupy existing vacant residential dwellings rather than building new structures. These group homes often reuse larger and older single family structures, duplexes and small apartment buildings. The location criteria and siting provisions for these types of group homes should be very similar to those for elderly congregate living facilities. The principal difference between the two is that there are fewer categories for the developmentally and physically disabled than for the elderly group homes. These group homes could be located in areas that permit higher density single family and multifamily uses (see Table 21). Halfway Houses This group of congregate living facilities is generally the most controversial and requires the most carefully siting criteria. This group may be defined as any locally state or federally approved dwelling used as a home for juvenile offenders; halfway houses providing residential care or rehabilitation for adult offenders in lieu of institutional sentencing; halfway houses providing residential care for persons leaving correctional and mental institutions; and residential rehabilitation centers for alcohol and drug users. These halfway types of congregate living facilities would not be compatible in single family areas. CITY OF EDGEWATER The most appropriate ares is to locate these types of group homes would be in multifamily and several commercial designated categories. The most intense categories of halfway houses (up to 50 residents) could only be sited in commercial areas located on arterial street. Table 21 also provides a summary of halfway house categories and future land use plan designations. Careful attention in the City's Land Development Code should be given to special provisions concerning yard, buffering and security requirements for halfway house facilities. This could be accomplished either in the zoning ordinance or through rigorous site plan review of such uses. Foster Care for Children The last principal category of group homes is foster care for children. The principal location criteria for this category of group homes closely resembles the locational criteria for single family housing. It includes the following: _ Located on local streets away from heavily traveled roads and through traffic; _ Located within reasonably close proximity (15 minutes driving time) to schools, parks, recreation, and medical facilities; Located in a single family or medium density multifamily neighborhood where such group homes would readily blend into the existing neighborhood fabric; and _ Locate on a site with sufficient size to contain ample yard area and buffer space. A recommended matrix of future land use plan designations and foster care group home categories (based on the maximum number of children) is presented in Table 22. Unlike the two previously described major group home categories, foster care homes for children would be located in most of the residentially designated areas and excluded from more intensive multifamily and commercial areas. 21 CITY OF EDCEWATER EMERGING GROUP HOME FACILITIES The four major categories of group homes for congregate living facilities and their recommended locational criteria and compatibility with future land use plan designations have been presented for elderly, developmentally/physically disabled, halfway houses, and foster care for children. These group homes will probably comprise all or most of these types of facilities likely to locate in Edgewater for the next 20 years. However, there are several new emerging group home types, which have developed in recent years. These include group homes for abused and battered wives, abused and battered children, and individuals with eating disorders. These groups come close to sharing characteristics of the individuals occupying "halfway houses." Therefore, the same siting criteria related to future land use plan designations should be used for these emerging types of housing. CONGREGATE LIVING FACILITIES/GROUP HOMES: CONCLUSIONS General provisions will be made for the location of group homes in Edgewater. Specific parcels will not be designated (this is not necessary as Rule 9J-5 does not specify a requirement to identify specific parcels for group homes). Rather, general locational criteria have been formulated and matrices have been provided for different categories of group homes and future land use plan designations. These matrices will provide guidance for City officials when a proposal for a group home for a specific site is presented in Edgewater, and whether or not a land use plan change and amendment would be necessary. Specific and detailed requirements for group homes will be included in the land development code. These will cover such items as minimum site areas, off-street parking, yard and buffering requirements. A final general guideline for the location of group homes is that they should be dispersed throughout the City to the maximum extent possible. No specific area or neighborhood should contain all or most of the group homes. SUPPORTIVE HOUSING PROGRAMS FOR THE ELDERLY The future housing demand analysis for the elderly presented earlier in this Housing Element stated that only a small percentage of the elderly population actually will need or want some sort of group care and congregate living. According to the U.S. Bureau of the Census in a comprehensive study entitled Demographic and Socioeconomic Aspects of Aging in the U.S. (P2,NO138) it was noted that a larger percentage of elderly owned their own homes in 1983 (70%), compared to the general adult population (65%). The same study noted that most elderly households want to and can stay in their present housing unit without going into either a group home 22 CITY OF EDGEWATER or institutionalized care facility. Therefore, while group home and congregate living facilities will be emerging housing types for the City of Edgewater, it will be confined to a rather small number of people. Future housing programs should concentrate on innovative methods for assisting the elderly population by supporting them in an independent living environment. Much of this effort can be performed by the City in conjunction with Volusia County and possibly, a non-profit organization charged with assisting the housing needs of the elderly. The City's role will involve education, regulatory reform and technical assistance to the elderly portion of the population. The following supportive programs should be considered for implementation between 1990 and 2000. A. Accessory Apartments Accessory apartments are completely independent living units installed in the surplus space of a single family residence. This results in two independent households living under one roof. This is a program which has been supported by the American Association of Retired Persons. The primary barrier to the implementation of this type of program has been regulatory, particularly the local zoning ordinance. Modifications would have to be made to the Edgewater Zoning Ordinance to permit accessory apartments. These accessory uses could be permitted in some single family districts and most multifamily districts, provided the overall unit contains a minimum amount of living space (this will have to be determined during the update of the City's land development code). The general picture of a successful accessory apartment program results in the maintenance of an independent living environment for the elderly while providing companionship for them and offers security and assistance to both households. ECHO Housing/"Granny Flats"/"Elder Cottages" These three programs are often used interchangeably and can be considered as the same program despite some minor differences. ECHO housing refers small temporary, living units placed in the yards of single family homes so that adult children can care for their aging parents. Older people can also install them in their yards and rent their homes in return for income and services. The ECHO unit is then removed when it is no longer needed. 23 CITY OF EDGEWATER "Granny Flats" or "Elder Cottages" are basically the same as ECHO housing except that these products are not temporary in nature, but designed for long term living. These units, which range in living space from 400 to 600 square feet, are usually placed in the side or rear yard area of a single family lot. Again, local zoning regulations present many of the hurdles to be overcome for successful implementation of these programs. Traditionally, single family zoning generally prohibits this type of accessory use. Modifications should be considered to the City's Zoning Ordinance that would allow additions to the yard requirements section and accessory uses in single family districts. "Granny Flats" and " Elder Cottages" could be placed under the special exception provisions within the single family zoning district, and contain specific language related to minimum living space and floor area; minimum lot sizes and minimum separation space between the primary residential structure, the "Granny Flat" or "Elder Cottages" and any other accessory building. Shared Housing Program Another concept which assists the elderly to maintain an independent living environment the one of "shared housing." This is an innovative living arrangement where two or more unrelated individuals live in the same residence, each having separate bedrooms. The major difference between shared housing and the other elderly programs is that under this concept the individuals share common areas. Shared housing programs can involve either a government agency or a private, non-profit housing corporation. The agency or corporation provides assistance in structuring this communal living environment and assumes the ultimate responsibility for the arrangement. Edgewater should study the most appropriate organizational form in considering this program. One option would be to develop a program under the jurisdiction of Volusia County or in a joint venture with the County. The other option for the City would be to form a community based non-profit housing services corporation. Necessary modifications to the Zoning Ordinance would be minor compared to the other programs listed previously. These modifications would include additions to the definitions for households and shared housing. A maximum number of individuals allowed in shared housing 24 CITY OF EDGEWATER would have to be specified. Tenant -Homeowner Match Program A closely related assistance program similar to shared housing is the "tenant -homeowner match program". The principle difference is that in the tenant -homeowner match program, the services to be rendered by the tenant to the elderly homeowner is more formalized than in shared housing. This is generally stated in an official contract between the two parties. Another difference is that in shared housing, the two parties are usually elderly individuals, while the tenant -homeowner match program normally involves either a young single person or a young couple and an elderly homeowner. The tenant, in return for paying a minimum rent to the homeowner, provides such services as yard work, home maintenance, errand running, housecleaning and sometimes cooking, free of charge. This program would seem to be especially appropriate for Edgewater. Since the local economy is dominated by relatively low wage paying jobs concentrated in the retail trade and services sector, many could take advantage of this program by paying almost no rent in return for their services. The organizational framework for this program would include the same options discussed earlier for the shared housing program. The same regulatory changes to the Zoning Ordinance would also have to be made. Volunteer -Credit Program This program is intended to help the elderly homeowner maintain his home and independent living environment. The major difference in this program and all the programs discussed previously is that no joint living or additional housing on site would be involved. This program involves volunteers in the local community to provide yard work, home maintenance and repair, and housecleaning in response to the needs of the elderly homeowners. Volunteers, in return, receive credits from businesses, fraternal clubs, schools and colleges entitling them to discounts in stores, special services, reduced club membership fees and lower tuition costs. Credits awarded are base on the amount and difficulty of the work performed by the volunteers. Credits are then presented to participating local businesses and institutions in return for discounts. 25 CITY OF EDGEWATER This program could be organized and administered as a joint venture between the City, County or housing services corporation and local Chamber of Commerce. No regulatory changes would be needed to implement this program. If all or most of these housing programs were to be implemented during the 1990-2000 period, they could substantially reduce the need for institutionalization of elderly households, reduce the need for congregate living facilities and maintain a high level of quality in the housing stock of the City. HOUSING FOR THE HANDICAPPED The disabled or handicapped population is a segment of the market which has special housing needs. No projection has been made of the special housing needs of this population group. The Volusia County Housing Assistance Plan indicates that 60 handicapped individuals in the County needs housing assistance. Based in Edgewater's share of the 1986 county population, the special housing needs for the disabled may be for less than ten individuals. However, their needs should be addressed. There are three steps that must be taken in order to meet the future housing needs of the handicapped. The first is the organization of a special task force comprised of local architects, builders, the disabled and social service agency personnel to prepare an ordinance for handicapped accessibility. The purpose of this ordinance would be to encourage future housing that would be barrier -free. Second, there must be established a framework to meet group housing requirements, including those for the physically and developmentally disabled, into the comprehensive plan and, ultimately, into the updated land development code. The third step involves the implementation of the housing programs that have been recommended to serve the elderly population, but could also serve the needs of the disabled. These include the share/housing, homeowner -tenant match and volunteer/credit program. ADEQUATE HOUSING FOR LOW AND MODERATE INCOME GROUPS The projected housing needs analysis indicated a need for over 2,300 dwelling units to serve lower income households between 1987 and 2000. A projected need of additional 2,300 units is also anticipated to serve moderate income households during this time period. Much of this need could be met with mobile homes. Therefore, it will be critical for the City to 26 CITY OF EDGEWATER either reallocate its existing designated land use mix and zoning and/or develop an annexation program to add additional land to meet this need. CREATION OF A COUNTY AUTHORITY AND HOUSING FINANCE AUTHORITY There will remain, a need to provide low and moderate single and multifamily housing. However, addressing this issue may be beyond the limited resources of a small city such as Edgewater. The recommended approach is to work toward the formation of a County Housing Authority. This authority could issue bonds to reduce the cost_ of borrowing to potential homeowners and also provide incentives for lower income oriented multifamily rental housing. This issue will also have to be addressed in the inter -governmental coordination element. HOUSING DEVELOPMENT GRANT PROGRAM In addition to promoting for the formation of a County Housing Authority, the City should also work with the County to secure housing development grant money from the federal government. Funding for this program remains rather limited and competition for these scarce dollars is quite fierce. However, this grant program does try to address the need to assist in the development of lower cost rental housing. This is done by leveraging grant money in the form of loans, interest reduction payments, gap financing and other methods to owners who agree to construct or substantially rehabilitate residential rental housing. These property owners must also agree to allow 20 percent of the units to be occupied by lower income households. MODULAR HOUSING TASK FORCE One area where direct City involvement is encouraged is the formation of a modular housing task force. This group should be comprised of builders, developers, bankers, architects, engineers, and citizens interested in providing affordable housing. Their primary mission would be to review local building codes to determine if there are any major barriers to modular housing. A second task would be to study and recommend the sites for modular housing. Third, this task force should solicit invitations from builders who specialize in modular housing. Finally, this task force should work to educate the general public on the role of modular housing to bring about more affordable housing. Modular housing, within this context, refers to dwelling units constructed in accordance with the criteria set forth in the Standard Building Code and made up of components substantially assembled in a manufacturing plant and 27 CITY OF EDGEWATER transported to a building site for final assembly on a permanent foundation. Modular homes are not mobile homes. In fact, they could be a viable alternative to mobile homes and this is why the recommendation is made that they be investigated. THE VOLUSIA COUNTY HOUSING ASSISTANCE PROGRAM Volusia County, through its Community Development Division, has prepared a three-year Housing Assistance Plan. A new plan is currently being prepared and will be forwarded to the U.S. Department of Housing and Urban Development in October 1987. The Housing Assistance Plan is part of the County's Community Development Block Grant Program. The three year plan calls for several implementation actions, including: Code enforcement activities in conjunction with housing rehabilitation; Assistance to developers who are interested in constructing subsidized housing; Land acquisition and site improvements for development of assisted housing; Encouraging the participation of cities to notify the Community Development Division of existing properties needed housing assistance; and Developing programs which address the need for housing replacement in lieu of housing rehabilitation. THE PRIVATE SECTOR HOUSING DELIVERY PROCESS: REMOVING IMPEDIMENTS The private sector is currently meeting the needs of the community in terms of providing much of the needed housing below the $60,000 price levels. This is substantially below the average of new housing costs in many Florida housing markets. The existing vacancy in Edgewater rate is between 2% and 5%, which indicates the housing market is near equilibrium. Earlier analyses indicated sufficient supply in the market based on the differential between average sales price and average listing price. The principal impediments in terms of future housing activity are the scarcity of land designated for future mobile home use and financial capability of lower income households who, 28 CITY OF EDGEWATER in Edgewater, prefer detached single family dwellings. A. Financing Housing Needs The general reduction in mortgage rates since 1980 may be one of the reasons for the brisk building permit activity that has occurred between 1980 and 1987. However, there is presently no mechanism to finance either low or moderate income single or multifamily housing in Volusia County, since the County lacks both a housing authority and housing finance authority. Such mechanisms allow counties to issue revenue bonds that indirectly subsidize the cost of housing either to developers or to housing consumers. There is a need for such a financing vehicle to serve the County. B. Land Development Regulations The principal limitation in the existing Zoning Ordinance is the lack of provisions for new housing types such as group homes. A thorough review of the land development code should be performed as it relates to housing affordability. Periodic review and updating of the land development regulations should be made on a regular basis to allow those new housing types that would be appropriate for Edgewater to be built. 3] CITY OF EDGEWATER GOALS, OBJECTIVES AND POLICIES INTRODUCTION The 1965 Florida Local Government Comprehensive Planning and Land Development Regulation Ac , and the planning process which has been developed to carry out this legislation, have constructed a strategy which integrates local plans with those of the State and region. This requires general agreement in the goals and objectives between State, regional and local plans. The state and regional plans are policy documents which are extremely broad in character. RELATIONSHIP TO THE FLORIDA COMPREHENSIVE POLICY PLAN The State Comprehensive Plan contains a policy related to the "availability and affordability of housing", as well as one overall general goal statement concerning housing. The goals, objectives and recommended implementation programs for the City of Edgewater Housing Element are in agreement with State plans concerning housing policies. Specifically, the implementation programs provide substantial support as to how certain segments of the population can be housed without institutionalization. Specific goals, objectives and implementation programs support the State's housing policy with regard to low and moderate income housing needs. Specific programs and recommendations have been designed to solve portions of this issue on a regional (county) level where it is most feasible. Additionally, several goals, objectives and recommended policies address the needs of the elderly and disabled population. Therefore, this Housing Element carries out stated goals found in the State policy plan relative to "Elderly" and "Health" issues. RELATIONSHIP TO THE EAST CENTRAL FLORIDA (DISTRICT 6) POLICY PLAN The goals, objectives, and policies of this Housing Element are consistent with the framework outlined in the East Central Florida Regional Planning Agency's Policy Plan where applicable. Several policies in the Regional Plan address such issues as downtown redevelopment and housing, as well as a minimum housing code. Some of these regional issues are not particularly relevant to Edgewater, since the City lacks a traditional older urban core. The Regional Plan does address the issue of "broad choice" of housing type and cost. This issue has been addressed in this Housing Element by stressing the need to maintain mobile 30 CITY OF EDGEWATER homes as a housing type, especially for those low and moderate income households seeking homeownership. The growing future importance of multifamily dwelling types has also been noted. Edgewater, while providing a variety of housing types, should maintain its present single-family orientation. The Regional Plan calls for vacancy rates needed for household mobility. Projections have been made using a five percent vacancy factor. This vacancy rate should be ample to provide sufficient household mobility, given the City's housing orientation and estimated past vacancy rates, which have been in the two to five percent range. A large portion of this study has been devoted to programs related to group homes necessary to meet Rule 9J-5 F.A.C. and the City's potential future demographic composition. This element is in full agreement with the Regional Plan's desire to integrate group homes into areas of residential character. The Regional Plan also addresses the need to reduce unnecessary regulation and delay in the land development regulation process. The cost of housing in Edgewater is generally in the affordable range and "over -regulation" is not a major issue. Much of the attention to the land development code in the future should involve additions to definitions and other modifications which incorporate new housing types such as group homes. With this as background, the following goals, objectives and policies have been developed for the City of Edgewater. They are pragmatic in that they reflect the desires of City officials. They are also realistic, from the standpoint that they are attainable. 31 CITY OF EDGEWATER CITY OF EDGEWATER'S HOUSING GOALS OBJECTIV GOAL Provide a variety of adequate housing for all present and future residents of the City of Edgewater through cost efficient objectives, while promoting individual self-sufficiency. ORJECTTVE Assist the private sector to provide 4,160 new dwelling units of various types, sizes and costs by 1995, plus an additional 3,600 new units between 1995 and 2000 to meet housing needs of the anticipated population of the City. POLICY 1.1 Provide technical assistance and incentives to the private sector to maintain a housing production capacity level sufficient to meet the demand. POLICY 1.2 Review building codes, zoning ordinances and land subdivision regulations to eliminate excessive requirements, and amend or add other requirements to encourage private sector participation in meeting housing needs. POLICY 1.3 Provide efficient, "fast -track" application processing for proposed housing development intended to meet the needs of the elderly and handicapped. POLICY 1.4 Amend zoning ordinance and land subdivision regulations to include site selection criteria for location of housing for the elderly and handicapped. OBJECTIVE 2: Provide adequate sites for well designed, well constructed subdivisions for mobile home parks. POLICY 2.1 Amend the zoning ordinance (including the zoning map) to allow for the development of additional mobile home parks. POLICY 2.2 Amend the zoning ordinances to require complete site plan review and approval for all new mobile home developments. POLICY 2.3 Amend the subdivision regulations to upgrade development requirements for all new mobile home parks and traditional residential subdivisions. POLICY 2.4 Provide supporting infrastructure to mobile home parks and traditional residential subdivisions. 32 CITY OF EDGEWATER OBJECTIVE 3: Provide housing at an affordable cost to meet the needs of all low and moderate income households. POLICY 3.1 Assist non-profit agencies to plan and develop low-cost housing and support services. POLICY 3.2 Amend the zoning ordinance to permit the development of low-cost housing at reasonable densities in appropriate and selected areas. OBJECTIVE 4: Achieve the annexation of adjacent vacant lands in unincoporated Volusia County to provide land to accommodate all types of new growth in the area, including mobile home parks and traditional residential subdivisions. POLICY 4.1 Consider annexation areas large enough to accommodate a variety of land uses, and that will be complementary to mobile home park and traditional residential development. OBJECTIVE 5: Provide adequate supporting infrastructure, i.e. paved streets, street lights, sanitary sewer, drainage, potable water, etc, throughout Edgewater to enhance and complement the City's housing element. POLICY 5.1 Initially, public infrastructure improve- ments should be scheduled for and concentrated in existing developed areas to upgrade the quality of these neighborhoods. POLICY 5.2 The provision of infrastructure (roads, sewer, water) facilities should be viewed as a means of guiding growth and development into geographic areas that the City wants to see developed. To that end, the preparation of the Utilities/Infrastructure Element and the Future Land Use Element should be Closely and carefully coordinated. OBJECTIVE 6: Establish a public/private dialogue that will lead to the provision, by the private sector, of recreational facilities within all subdivisions, including mobile home parks, to improve and expand the quality of life. POLICY 6.1 Establish a task force, including private developers and City officials to develop appropriate standards for recreational development within residential areas. POLICY 6.2 Carefully coordinate between the Future Land Use Element and Recreation Element to ensure the appropriate and adequate provision of recreational facilities. 33 CITY OF EDGEWATER OBJECTIVE 7: Provide adequate sites for group homes and aid, through appropriate zoning revisions, to establish such facilities to meet the needs of persons requiring this type of housing. Primarily, this objective should encourage and help to establish Adult Congregate Living Facilities (ACLF's), which will become an increasingly important issue as the existing population gets older. POLICY 7.1 Support the efforts of the Volusia County Housing Authority and assist in their effort to determine and develop sites for group homes. POLICY 7.2 Distribute group homes equitably throughout the City to provide for a variety of neighborhood settings for group homes and to avoid undue concentrations in individual neighborhoods. To that end, appropriate recommendations will have to be made in the Future Land Use Element, and revisions to the zoning ordinance will have to be implemented. OBJECTIVE 8: There should be periodic and systematic housing inspections by the Building Official's Department for the exterior condition of housing to maintain a minimum level of structural quality. In this way, the deteriorating process can be arrested before maintenance costs become prohibitive. POLICY 8.1 Consider expanding the Building Official Department's staff to meet the demands of a growing community. OBJECTIVE 9: There should be interior housing inspections of those units that, upon exterior inspection reveal deficiencies or when a change of ownership or occupancy of a rental unit takes place. OBJECTIVE 10: A survey of the City should be encouraged to identify all significant historic resources and stimulate the appropriate use of these resources while protecting the historic value and character. POLICY 10.1 Assist in the rehabilitation process and adaptive reuse (where necessary) of historically significant housing through technical assistance programs. POLICY 10.2 Assist property owners of historically significant housing in applying for and utilizing State and federal assistance programs. POLICY 10.3 Establish an Historic Preservation Board and assist them in their efforts to provide information, education and technical assistance relating to historic 34 preservation programs. CITY OF EDGEWATER 35 CITY OF EDGEWATER HOUSING MEDIAN HOUSEHOLD INCOME AND INCOME DISTRIBUTION One of the most critical indicators when analyzing local housing market demographics is income distribution. The distribution of income among five income groups is presented in Table 23. This table indicates a gradual redistribution from the lower to the higher income groups from 1979 to year 2000. The highest group is expected to comprise one-third of all households by the year 2000. The lowest will decline in its share to just about 15 percent by the turn of the century. This projected income distribution indicates that changes in the housing market may likely develop with a greater number of households able to afford more expensive and larger homes. The other changes indicate that many residents may find housing affordability a major issue in the future. PROJECTED HOUSING NEEDS Future housing needs have been projected for Edgewater for the years 1990, 1995, and 2000 by housing type and household income in 1980 base dollars and income groups. These Projections are based on a "housing demand model" using a wide range of input ariables including 1980 and 1987 population, number of households, household size, 1980 owner/rental mix, etc. Since the projections used income distribution trend data from the 1979-1987 period only, they are somewhat different from earlier data tables. The projections are for all housing types, including resident and seasonal units. The 1990 projections were made using a five percent vacancy factor. The 1995 and 2000 projections were made with no vacancy factor. This data is presented in Tables 24 through 26. SHORT TERM HOUSING NEEDS: 1987-1995 The short term projections for the year 1995 (time period 1987-1995) indicate a need for approximately 4,200 new units between 1987 and 1995. Almost 70 percent of these new units should be single family units. This includes almost 1,900 units which may be owner occupied and about 1,000 units likely to be renter occupied. Almost 24 percent of the new single family units are expected to be occupied by low and lower income households (households making less than $15,000 in 1980 dollars). Approximately 29 percent are anticipated to be occupied by moderate income households. Therefore, over 1,500 units (53 percent of all single family units) may be occupied by income groups which may need some housing 36 CITY OF EDGEWATER assistance. Mobile homes will be the second largest new housing type needed during this 1987-1995 period. The projected demand is for 560 new mobile home units. Mobile homes, until very recently, were clearly the second most popular housing choice for Edgewater residents. However, the City will run out of land designated for this housing type unless there are either land use plan changes within existing City boundaries or annexation of additional lands, or a combination of both. This is an important source of housing for the lower income groups. The remaining significant housing 1995 will be for multifamily units. about 560 new multifamily units will and 1995. Most of these will be Almost 75 percent are anticipated to lower income and moderate income provides a summary of the housing 1995. LONG TERM HOUSING NEEDS: 1995-2000 demand between 1987 and It is projected that be needed between 1987 renter occupied units. be needed to house low, households. Table 27 needs between 1987 and A total of almost 3,600 new units will be needed between 1995 and 2000. Single family units should continue to be the predominant type of housing unit during this period with almost three -fourths of the new housing units built. There will be a need to construct over 1,400 single family units devoted to low, lower and moderate income households. Also, there will be an ever-increasing need for units at the upper income scale. The need for multifamily housing is expected to exceed new mobile homes during this period. There will be a demand for more owner occupied multifamily housing than rental units during this time period as well, perhaps accommodating the increasing number of elderly or retired households projected to be residing in Edgewater by the year 2000. Many of these new units could be oriented toward low, lower and moderate income households. Mobile homes is expected to constitute a significant portion of the owner occupied housing between 1995 and the year 2000. There is a projected need for almost 400 mobile home units during this period. There will be a need for housing types which are oriented toward one and two person households. This explains in part the anticipated increase in additional owner occupied multifamily units by the year 2000. REPLACEMENT OF SUBSTANDARD UNITS There should be little need to replace substandard units, 37 CITY OF EDGEWATER since only 12 units were found in poor condition during the 1987 housing condition survey. The relatively young age of the existing housing stock will be a maior reason as to why replacement homes should not be an issue between 1987 and 2000. There will be a growing need, however, to develop a conservation strategy and program to maintain the existing excellent quality of the housing stock as the City approaches the year 2000. 38 CITY OF EDGEWATER Table 1 Edgewater, Florida Characteristics of Year -Round Housing Units: 1980 Vacant Total Type of Occupied Dwelling Units Dwelling Units Year -Round Units Dwelling Unit No. % No. % No. Y. Single-family 2,292 84.0 235 76.5 2,527 83.2 2 to 9 Family 144 5.3 31 10.1 175 5.8 10 Families or more 15 0.5 3 1.0 18 0.6 Mobile Homes 178 10.2 38 12.4 316 10.4 TOTAL 2,729 89.9 307 10.1 3,036 100.0 Volusia County All Types 105,773 87.3 15,463 12.7 121,236 100.0 State of Florida All Types 3,744,254 87.5 534,380 12.5 4,278,634 100.0 Source:U.S. Department of Commerce, 1980 Census of Housing (HC80-1-All) Strategic Planning Group, Inc., 1987 Table 2 Edgewater, Florida Age of Year -Round Housing: 1980 Year Built Number of Units % of Total 1970-1980 1,633 54.1 1960-1969 656 21.7 1940-1959 540 17.9 1939 or earlier 189 6.3 39 CITY OF EDGEWATER Table 3 Edgewater, Florida Availability or Facilities In Housing Units: 1980 y,ar.itnuntj Dwelling Unite Type of Facility Number Percent Bathrooms No Complete Private Bathroom ] 280 42.4 1 Complete Bathroom 526 17.4 ' 1-1R Bathrooms 1,212 40.2 2 Bathrooms or more Y tchenz .5 Lacking Complete Facilitiesl7 3,001 99.5 Complete Facilities Heating Equipment 2, 78.4 Central or Equivalent 253 253 Other Built -In Electric Unix 640 .4 21.2 Other Mcansor None Air Conditioning 792 13.0 None Central System 1,841 61.0 1 or more Individual Units 785 26.0 Source: U.S. Department of Commerce, 1980 Census of Housing (HC80.1-Bll) Strategic Planning Group, Inc., 1987 Table 4 Edgewater, Florida Overcrowded Housing Conditions: 1980 1.01 Persons Median Rooms In or More Per Room Total Governmental Unit Year -Round Units No. % Occupied Units Edgewater 5.0 59 2.2 2,729 Volusia County 5.3 3,254 3.1 105,773 State of Florida 4.8 198,445 5.3 33744,254 Source: U.S. Department of Commerce, 1980 Census of Housing (HC80-1-B 11) Strategic Planning, Group, Inc., 1987 40 CITY OF EDGEWATER Table 5 Edgewater, Florida Housing Conditions: 1979 and 1987 Condition of Housing Good Fair Poor TOTAL 1979* No. % 2,357 98.6 31 1.3 3 0.1 2,391 100.0 1987** No. % 5,172 98.9 46 0.8 12 0.2 5,230 100.0 Source: *City of Edgewater Comprehensive Plan, April, 1981 **City of Edgewater Planning Department Survsy, 1987 Strategic Planning Group, Inc., 1987 Table 6 Edgewater, Florida Percentage of Household Income of Homeowners Spent for Housing, by Income Groups: 1979 Less than $10,000 Income less than 25% spent for housing 25%-34% 35% or more not computed TOTAL $10,000 to $19,999 Income less than 25% spent for housing 25%-34% 35% or more TOTAL More Than $20,000 Income less than 25% spent for housing 25%-24% 35% or more TOTAL No. of Dwelling Units 277 163 220 18 678 544 105 78 727 479 60 539 41 CITY OF EDGEWATER Source: U.S. Department of Commerce, 1980 Census of Population and Housing (Summary Tape File 3A) Strategic Planning Group, Inc., 1987 42:! CITY OF EDGEWATER Table 7 Edgewater, Florida Value of Specified Owner -Occupied Housing: 1980 Value Range Less than $20,000 $20,000-$29,999 $30,000-$49,999 $50,000-$99,999 $100,000-$and over TOTAL Number of Units % of Total ill 5.7 445 22.8 1,075 55.1 297 15.2 24 1.2 1,952 100.0 Source:U.S. Department of Commerce, 1980 Census of Housing (HC80-1-All) Strategic Planning Group, Inc., 1987 43 CITY OF EDGEWATER Table 8 Edgewater, Florida Average Monthly Gross Rental Rates: 1980 Average Monthly No. of Rental Percentage Rent Range Units of Total Less than $100 8 2.0 $100-$149 33 8.2 $150-$199 68 16.9 $200-$299 179 44.5 $300-$399 47 11.7 More than $400 28 7.0 No cash rent 39 9.7 TOTAL 402 100.0 Table 9 Edgewater, Florida Percentage of Household Income of Renters Spent for Housing, by Income Groups: 1979 No. of Dwelling Units Less than $10,000 Income less than 25% spent for housing - 25%-34% 13 35% or more 144 not computed 23 TOTAL 180 $10,000 to $19,999 Income less than 25% spent for housing - 96 25%-34% 31 35% or more 21 not computed 12 TOTAL 160 More Than $20,000 Income less than 25% spent for housing 58 25%-34% - 35% or more - not computed 4 TOTAL 62 44 CITY OF EDGEWATER Source: U.S. Department of Commerce, 1980 Census of Population and Housing (Summary Tape File 3A) Strategic Planning Group, Inc., 1987 45 CITY OF EDGEWATER Table 10 City of Edgewater, Florida Rural Rental Housing (SEC 515) Units in Operation: 1987 Project Name Address Edgewater Park Apartments 118 Mockingbird Lane Edgewater, F1. (904) 428-8749 Owner Name Address Talmadge Stuckey Stuckey Development 5397 Roosevelt Blvd Jacksonville, F1. (904) 384-2115 Management Name Address Stuckey Mgmt. 5937 Roosevelt Blvd. Jacksonville, F1. (904) 384-2115 Source: U.S. Department of Agriculture, Farmers Home Administration, 1987. Strategic Planning Group, Inc., 1987. 46 CITY OF EDGEWATER Table 11 City of Edgewater, Florida, Mobile/Recreational Vehicle Parks: 1987 Park Name Street Address Mobile Recreational Total Owner's Name Spaces Spaces Water* Sewer* Spaces Eastern Shores Mobile Village 810 Camino Real Dr. Edgewater, FL 32032 Eastern Shore Mobile Village 141 0 1 1 41 Kopec Trailer Park 1092 S. Ridgewood Ave. Edgewater, FL 32032 Kopec Associates, Joseph Kopec, Agent 9 0 1 1 9 Pyramid Park Corp. 2351 S. Ridgewood Ave. Edgewater, FL 32032 Pyramid Park Corp. 66 0 1 1 66 Blue Gables Trailer Park 302 S. Ridgewood Ave. Edgewater, FL 32032 Becks Enterprises 62 0 1 1 62 Pez Adult Mobile Home Park 414 N. Ridgewood Ave. Edgewater, FL 32032 Richard & Gloria Mullen 46 0 1 1 46 Carter's Trailer Park 2850 S. Ridgewood Ave. Edgewater, FL 32032 Jimmie & Freeman Newell 50 15• 1 1 65 Riverview Pines Mobile Home Park 805 S. Ridgewood Ave. Edgewater, FL 32032 Arthur Goodrich 25 0 1 1 25 Driftwood Village 1709 S. Ridgewood Ave. Edgewater, FL 32032 John Filgate 23 1 1 1 24 47 CITY OF EDGEWATER Table 11 (cont'd) CityofEdgewater,Florida, Mobile/Recreational Vehicle Parks: 1987 Park Name Street Address Mobile Owner's Name Spaces Recreational Spaces Water* Total Sewer* Spaces Friendly Shores Mobile Home Park 2201 S. Ridgewood Ave. Edgewater, FL 32032 William Schneider & E. Gorman 44 0 1 1 44 Edgewater Mobile Home Park 316 S. Ridgewood Ave. Edgewater, FL 32032 Jack Lindenborg 90 0 1 1 90 TOTALS 556 16 - - 572 * - Code Sewerage System: 1 = Public System 2 = private Central System 3 = Septic Tank 4 = Combination of Central & Septic Tanks Water Supply: 1 = Public System 4 = Other Sources:State of Florida Department Rehabilitative Services, 1987. Strategic Planning Group, Inc., 1987. 48 of Health & CITY OF EDGEWATER Table 12 City of Edgewater, Florida Florida Master Site File (FMSF) of Historical Archaeological Sites FMSF No. FMSF Code* Site Name Township/ Range/Section Culture** Site Type*** 8VO113 A South Canal 17S/34E/29 51,64 9 8V0115 A Vaut Place 18S/34E/1------- 10 8V0116 A No Name 1BS/34E/1------- 12 8VO117 A No Name 18S/34E/1------- 1 2 * A = Archeological site ** 51 = Orange 64 = St. Johns II *** 9 = Prehistoric Midden(s) 10 = Prehistoric Shell Midden 12 = Prehistoric Mound Note: Although the FMSF has about 90 different culture codes and over 50 archeological site types, only those applicable to this table are hereby shown. Sources: Florida Department of State, Division of Historical Resources, 1987. Strategic Planning Group, Inc., 1987. W I iT b b P b M epn � P O d d d b Vf a .Yi O M Vpf N p� NN M fV Y, O O P O b M s s s CITY OF EDGEWATER 50 A a F CITY OF EDGEWATER it v1 w. �O 8 S T at N O p N e0 N O O C O o+ m r S S aq o. e a NN pN O pO O pS. O 8O 'L ^ a a a 8 C G N O O N bo m n eo v S �4 u � f� h CG� '� •�• d � O y 51 CITY OF EDGEWATER Table 15 City of Edgewater Shares of Residential Land Uses: 1979, 1987 Residential Percent of Total Percent of Total Land Use Residential Uses Residential Uses 1979 1987 Single Family 91.5 87.7 Multi -Family 1.8 6.7 Mobile Homes 6.6 5.6 Sources: City Edgewater Planning Department, Field Survey, June, 1987. Briley, Wild & Associates, Comprehensive Plan, 1981. Strategic Planning Group, Inc., 1987. Table 16 City of Edgewater Residential Land Use Absorption: 1979-1987 Residential Total Percent Annual Land Use Absorption of Average (Acres) (Acres) Absorption Absorp.(Acres) Single Family 273.55 80.4 34.19 Multi -Family 54.38 16.0 6.79 Mobile Homes 12.49 3.7 1.56 Total 340.42 100.0 42.55 Note: Subtotal may not equal 100.0 totals due to rounding. Sources: Field Survey, City of Edgewater Planning Department, June, 1987. Briley, Wild & Associates, Edgewater Comprehensive Plan, 1981. Strategic Planning Group, Inc., 1987. 52 CITY OF EDGEWATER Table 17 City of Edgewater Vacant Land by Residential Zoning Category: June 1987 Zoning Category Minimum Lot Size(sq.ft) Total Comments Vacant Acre %of Res. Vacantl %of Total Vacantz Single Family 1.334.57 72.7 58.3 R-1 12,000 157.92 8.5 6.9 R-Lk 12,000 60.53 3.3 2.6 R-111 10,000 127.55 6.9 5.6 R-2 8,625 43.54 2.3 1.9 R-2A 7,500 5.18 0.3 0.2 R-2B 10,000 858.04 46.4 37.5 R-3 8,625 81.81 4.4 3.6 Multi -Family 363.15 19.6 15.9 R4 8,250 35% Lot Coy. Max. 327.60 17.7 14.3 R-53 8,250 Cluster Res. Min. Project Size-10Acres 16.64 0.9 0.7 R-SA3 8,250 Cluster Res. Min. Project Size-IOAcres 18.91 1.0 0.8 Mobile Homes 14.76 8.1 0.6 MH-1 51000 Min. Project Area 5 Ac. 11.65 0.6 0.5 MH-2 6,000 Min. Project Area 50 Ac. 139.0 7.5 6.1 MH-S None3 0.00 0.0 0.0 Total Residential District 1,848.37 100.0 80.8 Notes: 1 Percentage of total vacant zoned residential district acreage only. 2 Includes vacant acies in residential districts as a percentage of total vacant acreage in all zoning districts. 3 Minimum lot sizes for duplexes only. 4 RS district was designed to accommodate pre-existing mobile homes located in Edgewater before other mobile home zoning was created. All existing mobile home units have been "grandfathered" in under this zoning. Sources: City of Edgewater Planning Department, Field Survey, June, 1987. Strategic Planning Group, Inc., 1987. 53 Table IS City of Edgewater CITY OF EDGEWATER Distribution of Vacant Residential Land: 1987 0.86 % 21.2 93 % ■ SINGLE FAMILY 0 MULTI•FAMILY 13 MOBILE HOMES Source: S"Wgie Planning Group, Inc., 1987. CITY OF EDGEWATER Table 19 City of Edgewater, Florida, General Locational Criteria for Mobile Home Developments and Urban Services Public/Commercial Facility Elementary School Secondary School Police & Fire Protection Community Recreational Facility' Arterial Street Medical Facility'' Employment Center" Neighborhood Shopping Community Shopping Regional Shopping Recommended Distance/ Driving Time' One Mile Three Miles Within Municipal Service Area 15 Minute Driving Time .75 Mile 15 Minute Driving Time 40 Minute Driving Time' Three Miles Five Miles 40 Minute Driving Time Notes: 1 Recommend distances or driving times represent maximum distances or driving times. 2 Community recreational facilities for this table may include ballfields, tennis courts, or any multipurpose recreation building. 3 Medical facility may include any physician's office, group practice or clinic. 4 Employment center for this table may include any planned office, business or industrial park; or large business or government operations containing employment opportunities exceeding 250 full time jobs. 5 Driving time to major employment centers based on one way trip. Sources: V.S. Department of Housing and Urban Development. Shopping Center Development Handbook, Urban Land Institute CITY OF EDGE11AI- Strategic Planning Group, Inc., 1987. 56 CITY OF EDGEWATER Table 20 City of Edgewater, Florida Congregate Living Facilities/Group Homes (Elderly Oriented Facilities) and Land Use Plan Designations Land Use Group A Group B Group C Group D Plan Designation Max.: 8 Max: 12 Max: 20 Max: 50 Single Family: Low Density Single Fam.: Medium Density Multi -Family: Medium Density Multi -Family: Med./High Density Mobile Homes Neighborhood Commercial Highway Commercial Professional & Business Office Industrial Notes: * Assumes that congregate living and group homes for the elderly are consistent with the listed future land use plan designations and would not require a land use plan change (amendment}. Sources: Strategic Planning Group, Inc., 1987 57 CITY OF EDGEWATER Table 21 City of Edgewater, Florida Land Use Plan Designations for Developmentally/Physically Disabled and Halfway Houses Land Use Groupl Groupli Group III Gmupl Groupll Group III Group IV Plan Designation Max:4 Max:9 Max:12 Max:10 Max:20 Max:35 Max:50 Single Family: Low Single Family: Mad. Multi -Fan: Mad. • • ' ' ' Multi-Fam.: MedJHigh • " ' ' " ` Mobile Homes ` Neighborhood Commercial • • • r r Highway Commercial Professional & Business Office ' • " ' ' ' Industrial Notes: • Assumes that congregate living and group homes for the disabled and halfway houses' will be consistent with future land use plan designations and would not require a land use plan change (amendment). Sources: Strategic Planning Group, Inc., 1987. 58 CITY OF EDGEWATER Table 22 City of Edgewater, Florida Congregate Living Facilities/Group Homes (Foster Care Homes for Children) and Land Use Plan Designations Land Use Plan Designation Group A Max.: 8 Group B Max: 6 Group C Max: 12 Group D Max: 25 Single Family: Low Density Single Fam.: Medium Density Multi -Family: Medium Density Multi -Family: Med./High Density * Mobile Homes Neighborhood Commercial Highway Commercial Professional & Business Office Industrial Notes: * Assumes that congregate living and group homes for the foster care are consistent with the listed future land use plan designations and would not require a land use plan change (amendment). Sources: Strategic Planning Group, Inc., 1987. 59 i. v� ao m h q N t�1 pO N N O v 0. K O Q a Q D W N Vi w 01 r W � < O a a. O �O yp• K uc vi N eo v1 O O u N •�+ N .�. N O r a z N d c U E u C � CITY. OF EDGEWATER G�G o 81 n c � roc 9 00 % 3 ti 5 _ o E•`-�gg,a• n� w"�•�y•gg N r r � d O War �z'J Nq UN •C c m 9= C c •a< ^�v 'FC aoUV � x°S ! cn oca of a�=a 5'AAa==� c AUZE 0. p„M y mm y'=oSo a zu« o c`3zvyi cCCe.��C m N h •N• t,^1 � N fV < .w h ?�31dM3043 A0 XJ-10 6 b n n w� P M M C.Mi h N tiNf M 00 C oo Ni r M M o ao 0o cpps gyp' .. ... F 83JVM30a3 30 A110 62 C § & w b 831VM]9O] ]O Ail"" 63 Nt� M � N oho � N tin NN.i C u F CC i 2i31dM3043 30 Ally 64 CITY OF EDGEWATER EVALUATION AND APPRAISAL OF CURRENT HOUSING The Housing Element coordinates data on all aspects of residential land use in Edgewater. This includes projections of future household formation, the land requirements for additional housing and the private sector housing delivery process. The objectives and polices set out community values to direct public and private actions to provide suitable housing. The Housing Element and Future Land Use Element provide and important coordination function in preparing the overall comprehensive plan. The following checklist has been used to compare the content of the existing Plan with the minimum requirements of Chapter 9J-5. A determination of yes or no indicates whether an issue specified by Chapter 9J-5 is adequately addressed in the current plan. COMMENTS The Housing Element of the 1981 Plan presents very little data in either narrative or tabular form. It also lacks information (and geographic location) on historic resources, licensed group homes, mobile home parks and subsidized housing now required by Chapter 9J-5. It does not designate zoning categories appropriate for mobile homes, low and moderate income housing, or foster care facilities. A. LEGISLATIVE REQUIREMENTS 1. The major problems of development, physical deterioration, and the location of housing and the social and economic effects of these problems: Major Problems: Because almost all of the land zoned for mobile homes has been utilized, there are few sites available for the development of low and moderate income housing. Development design requirements and square footage standards contained in the zoning ordinance make it difficult to construct affordable housing. Social and Economic Effects: Escalating land values have caused a reduction in the range and types of new housing proposed for Edgewater. The Condition of Housing at the Time of Plan Adoption and at the Present: The latest statistics on housing and population characteristics for Edgewater as a whole are available from 1980 Census 65 CITY OF Fnr.PIA/ATPQ CHECKLIST E. HOUSING ELEMENT 1. Data Requirements a. An inventory from the U.S. Census, of local housing and housing characteristics. b. An inventory of governmental subsided rental housing. c. An inventory of licensed group homes. d. An inventory of existing mobile home parks. e. An inventory of historically significant housing. f. Annual housing construction/demolitions (by type) since the Census. 2. Housing Analysis Requirements a. Projection of new household formation, by type. b. Projected additional housing needs, including separate estimate forrural and farm worker households. c. land requirements for additional housing. d. Private sector housing delivery process. e. The provision of housing for the anticipated population especially low- moderate income. f. Elimination of substandard housing and overall aesthetic improvement of stock g. Provision of adequate sites for mobile homes and low -moderate housing. It. Provision of adequate sites in residential areas for licensed group and foster homes. 3. Housing Goats, Objectives and Policies a. Goal statements toward which housing programs are directed. b. Specific objectives: (1) Providing adequate and affordable housing for existing and anticipated populations. (2) Eliminating substandard housing conditions, and improving the structural and aesthetic condition of existing housing. (3) Providing adequate sites for housing low and moderate income families and for mobile homes. (4) Providing adequate sites in residential areas for licensed group homes and foster care facilities. (5) Providing for the conservation, rehabilitation or demolition of housing, including the identification of historically significant housing. (6) Providing for relocation housing. (7) The formulation of housing implementation programs. YES No ✓ ✓ ✓ ✓ ✓ ✓ ✓ ✓ ✓ ✓ ✓ 66 STRATEGIC PL 017NG GROUP, INC. CITY VVATER YES NO c. Implementation policies for the: (1) Involvement of local government in housin; production; ✓ (2) Improvement in the regulatory and pemutting processes, if deemed necessary by the local government; ✓ (3) Establishment of standards addressing the quality of housing, stabilization of neighborhoods and identification and improvement of historically significant housing; (4) Establishment of principles to guide conservation, rehabilitation and demolition program techniques and strategies; ' ✓ ✓ (5) Establishment of principles and criteria guiding the location of housing for low and moderate income families, mobile homes, group homes and foster care facilities, and households with special housing needs including rural and farmworker households, and including supporting infrastructure and public facilities; ✓ (6) Establishment of principles and criteria guiding the location of group homes and foster care facilities licensed or funded by the Florida Department of Health and Rehabilitative Services that foster non- discrimination, and encourage the development of community residential alternatives to institutionalization including supporting infrastructure and public facilities; (7) The utilization of federal, state and local subsidy, programs; (8) The provision of relocation housing. ✓ ✓ 67 ` R'f9�tTfir ry.AW1 r. eReWdNC ■ CITY OF EDGEWATER publications. However, Planning Department staff and the City's housing consultant have updated certain housing information through 1986. City of Edgewater Population and Housing: 1980 - 1986 1980 1986 Population 6,726 11,039 Housing Units 3,036 5,076 Persons Per Occupied Unit 2.45 2.37 New Units Added - 2,040 Increase in Units Previous Period - 67.2 Source: Edgewater Planning Department, 1987. Strategic Planning Group, Inc., 1987. This information shows a dramatic increase in housing units for the time period examined. However, the density per dwelling unit has decreased, which suggests formation of more households rather than increasing population reflected in higher occupancy densities. The trend toward a higher rate of household information is consistent with state and national conditions. Another important housing characteristic is the median value of housing and the population of owner -occupied units. City of Edgewater Selected Housing Characteristics 1980 Total Occupied Units 2,729 • Owner Occupied 85.3 • Renter Occupied 14.7 Median Value $36,700 Source: U.S. Census Bureau, Detailed Housing Characteristics 1980. Strategic Planning Group, Inc., 1987. The median value of housing in Edgewater experienced a substantial increase in the decade from 1970 to 1980. During this period, there were continued high owner occupancy rates, which indicates the strong presence of year-round, permanent residents. The increase in housing value was fueled by high rates of inflation and a desirable location within the metropolitan Daytona Beach region. This supply and demand mechanism has particularly elevated land values so that the increase in housing value is due partly to land cost and partly to higher value dwellings. 68 CITY OF EDGEWgTER The Objectives Contained in the Housing Element as Compared with the Actual Results: "Ensure a variety and availability of housing types for all sectors of the Edgewater population." Very little has been done to establish a diversity of housing stock for all sectors of the City's population. In fact, because there has been no review of lower income housing needs, and the mobile home park areas have been essentially filled, there are almost no housing opportunities remaining in this group. Housing being built today is focused within a narrow range serving middle income housing demands. "Protect and improve the existing housing stock and develop annual programs to assure the goal is being met." Although an annual housing programs have been prepared, recent experience suggests that only isolated housing problems exist and that there is minimal need for systematic code enforcement. The comprehensive planning process under Chapter 9J-5 is intended to highlight major problems and to recommend corrective action. once the plan has been reviewed by the State and adopted locally, the development regulations, codes and ordinances will have to be reviewed, updated and brought into compliance with this plan. D. The Extent to Which Unanticipated and Unforseen Problems and As mentioned, the failure of the City to expand the amount of land available for mobile home development has limited the amount of housing opportunities for low and moderate income households. This may be construed as being restrictive or contradictory to affordable housing objectives. H. RECOMMENDATIONS The degree and level of analysis presented in the 1981 Housing Element are indicative of the lack of any minimum requirements from the previous comprehensive planning legislation. For the most part, the housing objectives that were developed in the 1981 Comprehensive Plan do not provide long-term guidance toward meeting housing goals. New objectives need to be written in response to current and anticipated housing problems. The current problems involve private sector housing issues and the role of regulation and achieving housing goals. The private sector aspects of housing need strengthening in the new Plan. ru rn CITY OF EDGEWATER =.. Recommendation CITY OF EDGEWATER Enlarge and use distinct patterns and colors on the Future Traffic Circulation Map and include the street names, so that the roadways can be distinguished from one another. RESPONSE: The Future Traffic Circulation Map has been enlarged and distinct patterns have been used for clarity. In addition, street names, etc. have been included for clarity. HOUSING ELEMENT A. OBJECTIONS Data 9J-5.010 (1) (c). Although the indicators of substandard housing conditions listed on page 3 include the lack of a water system or means of disposing of sewage, the number of houses without water systems or means of disposing of sewage are not included in the data and analysis to determine the number of substandard houses in Edgewater. Recommendation Expand the data to address all indicators of substandard housing conditions by including the number of houses without water systems or means of disposing of sewage. RESPONSE: We have not been able to locate specific 1980 Census data indicating the actual number of units lacking a water supply or a means for disposal of sewage. It can be inferred from the data given however, that this number page 40 indicates that then indicating that all units have same table indicates that only complete kitchen facilities, percent have some form of water Revisions have been included objection 2, below. is extremely small. The table on e are no units lacking bathrooms, some form of sewer service. The one-half percent of the units lack indicating that at least 99.5 supply. 43 to the discussion in response to CITY OF EDGEWATER 2. 9J-5.010 (1) (c). The data concerning the number of homes with heating equipment on Page 3, which states that "only about one percent did not have a complete kitchen or heating equipment," is not consistent with Table 3 on page 40 which shows that 21.2% of the homes do not have heating equipment. Recommendation Revise the data estimations on the number of homes without heating equipment to be consistent. RESPONSE• The discussion on page 3 should be revised. CORRECTED TEXT• Second paragraph under "E. Condition of Housing" Genera}}y;-the-qua}ity-ef-hensing-in-the-city-is-h}gh---A}}-units hed-a--eemp}etc-private-bathy-en}y-about-ene-percent-tlitl-not-have a--eemp}etc--kitchen--er--heating--equipment.-----Apprex}mete}y-89 percent-of-a}}-units-were-served-with-air-eenditien}ng: Generally, the 1980 US Census data indicates that the quality of 3. 9J-5.010 (1) (h). An inventory of the amount of housing construction activity affecting changes in the number of housing units, based on conversions, mobile home placements and removals, in number of units for years since 1980, is not included. Recommendation Expand the inventory of housing construction activity to include changes in the number of housing units based on conversions, mobile home replacements and removals for the years since 1980. 44 CITY OF EDGEWATER RESPONSE: A check with the office of the city's Building Inspector indicates that there are no records summarizing conversions of units or placement or removal of mobile homes since 1980. Analysis 9J-5.010 (2) (c). Although pages 26 and 27 state that "it will be critical for the City to either reallocate its existing designated land use mix and zoning and/or develop an annexation program to add additional land to meet this need," page 12 states that "even without considering annexation, sufficient vacant residential land exists to accommodate Edgewater's anticipated future residential growth for the next 30 years." The plan goes on to state "while sufficient residential lands remains to accommodate future residential growth ... a high proportion of land has been allocated to single family and multifamily housing, as compared with almost no land being available for future mobile home development." From this information it is not clear why Edgewater should choose from annexation strategies rather than simply changing the zoning regulations to allow for more mobile homes. By annexing more land than is needed to serve the future population for the next 30 years if not accompanied with rational utility expansions, properly timed to guide growth, Edgewater would be contributing to urban sprawl. Recommendation The City should provide sufficient land to meet the demand for mobile homes by correcting the imbalance in residential zoning rather than contributing to urban sprawl by annexing more land than,is needed to serve the future population. RESPONSE: The objection correctly interprets the analysis as indicating a concern over the ability of the existing area of the city to adequately .provide for the projected housing needs in consideration of the projected mix. It is simplistic to assume that an arbitrary reallocation of the zoning mix will resolve this problem, as many other factors are also important. These other factors include location, availability of appropriate services, compatibility, land values, and market acceptance. 45 CITY OF EDGEWATER While the data and analysis indicate that there is adequate raw land for residential use, this does not, in and of itself, reflect the quality of the various areas and the constraints which limit the utility of land for particular kinds of residential uses. The implication that annexation will contribute to urban sprawl is inconsistent with the facts. Volusia County will have significant growth over the next twenty years. The location of I-95 nearby will have an influence on that growth. Progressive steps by Edgewater to annex close -by areas and service themas a logical extension of an existing urban area is a policy designed to meet future growth needs in an orderly fashion and result in a more logical development pattern for the county that would be a strategy of limiting development adjacent to Edgewater in favor of large scale development in inappropriate locations elsewhere in Volusia County. Expansion of housing opportunities is not the overriding justification for annexation, however. As the data shows the potential for significant population increases in Edgewater, it is clearly in the city's best interests to identify areas for expansion and make orderly plans for expansion than to sit around and wait for whatever results from actions by other forces. Clearly, control over the I-95 interchange area will make a significant difference in influencing the quality of life and appropriateness of development activity from the perspective of the existing residents in Edgewater. CORRECTED TEXT: Page 12, Revise first sentence, first paragraph under the Residential Land Availability RESIDENTIAL LAND AVAILABILITY AND RESIDENTIAL LAND ABSORPTION RELATIONSHIPS Even --- without ---- considering --- annexa{ieny --- sufficient --- veeent residentie}-}end-ex}sts--te--aceemmada{e--Edgewaberis-anbieipabed future-residen{ia}-growth-for-the-next-39-yeer3--- In theoretical cross terms, sufficient land vacant residential land exists to accommodate Edgewater's anticipated future residential growth for the next thirty years. Pages 26 & 27 Revise last sentence in the discussion of Adequate Housing for Low and Moderate Income Groups 46 CITY OF EDGEWATER ADEQUATE HOUSING FOR LOW AND MODERATE INCOME GROUPS fherefere;-ik-wiii-be-erikieai-fer-khe-eiky--ke-eikher-reeiieeake iks-existing-destgnnked-innd-nse-mix-and-=erring-nndter-deveiep-nn nnnexnlien-program-ke-odd-odd rkienai-lend-ke-meek-khis-need. 5. 9J-5.010 (2) (f) 1. An analysis of the means to provide housing with infrastructure with emphasis on low and moderate income households is not included. Recommendation Expand the analysis to include the means to provide housing with infrastructure with an emphasis on low and moderate income households. RESPONSE• Add text to address this issue: CORRECTED TEXT: Add new section at the end (on page 29) C. Infrastructure Reouirements The infrastructure needed to support low and moderate housing activities is the same as that required to support other planned or are underway to make these improvements. 47 CITY OF EDGEWATER landowners are required to pay periodic assessments to fund operations and capital improvements. enough to destroy the financial feasibility of the ❑roject. Under the theory that these are fees for services or benefits New Policy Page 33 9J-5.010 (2) (f) 3. Although the City now has locational criteria for mobile home sites listed in Table 19 on page 55, it is not clear whether sufficient amounts of land within the city can meet the criteria for mobile homes. Recommendation Expand the analysis to clarify the extent to which the locational criteria for mobile home developments can be met in Edgewater, and explain why these restrictions should not apply to all housing. Although the intent of the criteria may be to provide more land for mobile home development to meet the city's demand, the end result may actually exclude mobile homes if, for instance, there are no vacant land areas within one mile of an elementary school and within three miles of a secondary school. If this is the case, the criteria may need to be revised to allow mobile homes in other areas as well. RESPONSE: The concern reflected in this objection is that the criteria are too strict, and will result in a practical prohibition of additional mobile home development within the city. 48 CITY OF EDGEWATER CORRECTED TEXT• Delete table 19 on page 55 and utilize the more general standards contained on page 14. ;AB6E-}9 -S44Y-eF-EBSENA4ERT-F68R}BAT-SENERA6-68EA;4eNA6 ER}4ER}A-FBR-MBB}6E-H6ME-BEVE6BPMEN;S-ANB- HRBAN-SERV}SES Pah}ie}Eemmere}a} Recommended-Bistaneef --- Fee }}}{y ----Br}v}ng-;}me ------------------------------------------------------------- E}ementary-Sehoe} Bne-M}}e Seeendary-Sehee} ;hree-Mi}es Pe4ice-6-F}re-Prateet}en Nith}n-Mnnic}pa}-Serviee -----Area Semman}ty-Reereak}ena}-Fee}}ity }5-Minate-Brtvinq-;ime Arter}e}-Street-95-M}}e Modica}-Fae}}ity }5-Minnte-Briv}ng-;ime Emp}ayment-Eenker 40-M}nnte-Br}v}ng-;}me Neighberheed-Sheep}ng - Three-M}}es Eemman}ty-Shapp}ng F}re-Mi}es Reg}ona}-Shopping 40-M}note-Br}ving-;}me Notes: }- Recommend-distances-or-dr}v}ng-times-represent maximum-diskenees-er-driving-times: 2- Eemmnniky-recreetiena}-fnei}it}es-for-this-table may-ine}nde-be}}f}e}dsT-tennis-eenrtsT-er-any mn}!i-purpose-recreation-bn}}ding= B- Medien}-fee}}ity-may-ine}nde-any-physic}ens off}eeT-group-preek}ee-or-a}inie- 49 kCfTY OF EDGEWATER 4- Emp}eyment-center-for-this-teb}e-may-ine}nde-any- piarmed-effieey-bnsiness-er-}ndastrie}-porky-er i nrge-bnsiness-er-geyernment-eperatiens-eenteining empieyment-epper{anities-exceeding-258-fa}}-{ime- iebso 5- Hriring-time-te-me3or-empiayment-centers-based-on en-wey-trip- Seareese Goals. Objectives and Policies 9J-5.010 (3) (b) 1. Objective 2, concerning the provision of adequate sites for mobiles homes, is not measurable. Recommendation Revise the objective to be measurable. Include in the objective or its supporting policies a specific measure such as a quantity, percentage or standard that will be achieved within a specific timeframe or by a specific date. RESPONSE: The present language is not clear in indicating the quantity of need (most likely in terms of the number of spaces) which will be met and a date by which this will be accomplished. A more appropriate approach, as indicated by the policies, would be to indicate that all local constraints to the development of mobile home parks will be removed by a certain date. This is largely a function of changing procedures and standards under the land Development Regulations. CORRECTED TEXT: Page 32 Sbjee{ive-2: Provide--adegnnte--si{es--fer--we}}-designed,-we}} eenstrae{ed-snbdivisiens-fer-mebi}e-heme-perks. Objective 2: By November 1. 1990, the city will review and 50 CITY OF EDGEWATER safety, or welfare of the community, as specified in the followino policies: 9J-5.010 (3) (b) 1. Objective 3, concerning the provision of affordable housing to meet the needs of all low and moderate income households, is not measurable. Recommendation Revise the objective to be measurable. Include in the objective or its supporting policies a specific measure such as a quantity, percentage or standard that will be achieved within a specific timeframe or by a specific date. RESPONSE• The present language is not clear in indicating the quantity of need in terms of the number of units which will be provided by the city and a date by which this will be accomplished. Again, as with mobile homes, the city's objective is probably not to actually provide housing, but to facilitate provision of housing by others. A more appropriate objective, as indicated by the policies, would be to indicate that all local constraints to the development of low and moderate income housing will be removed by a certain date. As with mobile homes, this is largely a function of changing procedures and standards under the Land Development Regulations. CORRECTED TEXT• Page 33 eblective-S: Provide-housing--st-an-affordable-east-to-meet-the needs-ef-a}}-}ew-end-moderate-income-households.-- the following Policies: 9J-5.010 (3) (b) 1. Objective 7, concerning the provision of adequate sites for group homes through zoning revisions, is not measurable. 51 CITY OF EDGEWATER Recommendation Revise the objective to be measurable. Include in the objective or its supporting policies a specific measure such as a quantity, percentage or standard that will be achieved within a specific timeframe or by a specific date. RESPONSE: The present language is not clear in indicating the degree to which the need will be satisfied in terms of the number of units which will be provided by the city and a date by which this will be accomplished. As with the categories of housing need addressed above, the city's objective is probably not to actually provide group homes and ACLF housing, but to facilitate provision of these housing types by others. A more appropriate objective, as indicated by the policies, would be to indicate that all local constrants to the development of these types of housing will be removed by a certain date. This is largely a function of changing procedures and standards under the Land Development Regulations. Note that objection 13 indicates that this objective should ensure adequate provision of sites within residential areas for group homes and foster care facilities. CORRECTED TEXT: ebieckive--7: Provide-edegnn{e-si{es-for--group--homes--end-aide khrengh--- appreprieke --- Taning---revisions;---{e--eskeb}ish--such foci}i{ies-ke--met-the--needs-ef--persons-requiring--this-{ype-ef hens}ng----Primer}}yr-kh}s-ebyeetive-shen}d-eneenrege-and-he}p-!e eskebiish-Adn}k-Eengrege{e-E=i ving-Faei}}{ies-fAEEF+s}'-which-w}}} beteme-en-inereesing}y-imper{an{-issue-as-{he-ex}string-peps}nkion gets-e}der. CORRECTED TEXT: Page 34 52 10. 9J-5.010 (3) (b) 2. CITY OF EDGEWATER Objective 8, concerning exterior hpusing inspections, is not measurable or specific. The meaning of the terms "periodic," "systematic" and "minimal level of structural quality" is unclear. Recommendation Revise the objective to be specific and measurable. Include in the objective or its supporting policies a specific measure such as a quantity, percentage or standard that will be achieved within a specific timeframe or by a specific date. This may be done by defining the terms "periodic," "systematic" and "minimal level of structural quality." RESPONSE: The present language is not measurable and uses terms which are subjective. The general parameters of a housing inspection program should be included. Note that objection 31 below addresses a related objective and that our recommendation is to combine objectives 8 and 9 and revise their related policies. See recommendations for objection 11 below. 11. 9J-5.010 (3) (b) 2. Objective 9, concerning interior housing inspections, is not supported by one or more policies that provide specific implementation programs or activities that the city will undertake in order to achieve the objective. Recommendation The objective must be supported by one or more policies with specific implementation programs or activities that will be undertaken by the City of Edgewater to achieve the goal and objectives. RESPONSE: Rule 9J-5 requires that each objective be supported by at least one policy which describes the programs, activities, or actions which will be undertaken to achieve the goal. Since objectives 8 and 9 both deal with inspections, they should be combined and the various necessary policies should be rewritten. 53 CITY OF EDGEWATER Note that objection l4 indicates that these objectives should address conservation, rehabilitation, or demolition of substandard housing. This has also been addressed intherevised Language. CORRECTED TEXT: Page 34, Combine and revise objectives 8 and 9 and their policies: Sbieekive-B: There--ahen}d--be--periodic-end-ayatemakie-henaing inapeekiena--by--khe--8ai}ding--Bffieia}si--Beparkment---#er--the ex{crier--eend}kien--ef--heaping--te--maintain-a-minimum-}eve}-e# �krneknra}-qaa}ity---}n-khia-wavy--khe-de{erieraking--preeeea-can be-arresked-6efere-mainkenenee-eoata-become-prehibikive- Pe}iey-e-+ Eeneider ---- expanding ---- the --- Bai}ding--- Bfficia} 9epar{menkia-akeff-ke-mee{-khe-demands-of-a-growing-cemmnniky. Policy 8.2: Policy 8.3• Policy 8.5: The city shall utilize CDBG funds to assist with the relocation of residents and the demolition of housing units 54 CITY OF EDGEWATER B93EE}}VE-9: }her-ehen}d--be--}n{erior--honetng--inepee{iene-ef these-nni{�-thakp-open-ex{erior-inapee{ien-revea}-defie}eneiea-er when-e-change-ef-ewner�hip-er--eeenpeney-ef--a-renke}--nnik-kekes p}eee- 12. 97-5.010 (3) (B) 3. Objective 4, which states "achieve the annexation of adjacent vacant lands in unincorporated Volusia County to provide land to accommodate all types of new growth in the area, including mobile home parks and traditional residential subdivisions," does not sufficiently address the provision of sites for low and moderate income housing and mobile homes because it is not consistent with the data and analysis. Page 12 of the plan states that "even without considering annexation, sufficient vacant residential land exists to accommodate Edgewater's anticipated future residential growth for the next 30 years." As stated in Objection 4, by annexing more land than is needed for 30 years, Edgewater is further contributing to the already existing urban sprawl. Recommendation Rather than annex more land than is needed to serve the population, the City should revise its zoning regulations to correct the imbalance of land allocated to mobile homes. RESPONSE: This objection is discussed in objection 4 above and changes have been made to the data and analysis portion of the text. While the provision of an adequate mix in the housing stock is not in and of itself a justification for annexation, consideration of the opportunities for adequate housing opportunities is a valid consideration in annexation. CORRECTED TEXT: Page 33 ebieek}ve-4t Achieve-the-ennexetien-ef-adieeen{-vacant-}ands-in nnineerpereted-Ve}n�ie--Eennty-{e-provide-}and-ke-aeeemmedete-a}} type-of-new-grewlh-in-the-creep-ins}nding--mebi}e-hems--perks-end t redikiena}-re�idenlia}-enbdivieiona- 55 CITY OF EDGEWATER Pe}icy-4-}- Eons+der --- annexation --- areas --- }erge --- enough --to accommodate --- a --- varie{y---of---}end--uses;--end--the{--wi}}__be eempiementary-{e-mob}}e--home--park--end--Credit}one}-residen{ia} dove}epmen{---- 13. 9J-5.010 (3) (b) 4. Objective 7 is not sufficient to provide adequate sites in residential areas for group homes and foster care facilities because, as stated previously, the objective is not measurable. Recommendation Revise the objective to be measurable. Include in the objective or its supporting policies a specific measure such as a quantity, percentage or standard that will be achieved within a specific timeframe or by a specific date. RESPONSE: This has been addressed under objection 8 S 9 above. 14. 93-5.010 (3) (b) 5. Objectives 8 and 9 are not sufficient to,provide for the conservation, rehabilitation or demolition of housing because as stated previously, Objective 8 is not measurable and Objective 9 is not supported by one or more policies which provide for implementation programs or activities. Recommendation Revise Objective 8 to be measurable. Include in the objective or its supporting policies a specific measure such as a quantity, percentage or standard that will be Y7 CITY OF EDGEWATER achieved within a specific timeframe or by a specific date. Objective 9 must be supported by one or more policies which identify implementation programs or activities that the city will undertake to achieve the goal and objective. RESPONSE• This has been addressed in the combination of objectives 8 and 9 and in the revision of their policies under objection 10, above. 15. 9J-5.010 (3) (b) 5. Objective 10, concerning a survey of significant historical housing, is conditional and lacks measurability because it states that a survey of the city "should be encouraged" rather than stating that a survey will be conducted by a specific date. Recommendation Revise the objective to be measurable by eliminating the conditional language and identifying a specific date by which the survey will be conducted. RESPONSE: The objection is correct in that the objective is conditional and lacks a target date. The implication of the accompanying recommendation, however, is that the city must conduct the survey, which is not supported by the law or 9J-5. CORRECTED TEXT: Page 34 ebyee{}ve-}oe A-survey--ef--{he--c}{y--shed}d--be--encouraged-to identify--a}}--eignif}eon{--hie{er}e--reeedreee-end-a{imd}a{e-the eppropr}e{e-nee-ef-theee-reeenreee-whi}e--pre{ee{}ng-{he-hie{er}e va}ye-and-eheree{er- 57 CCITY OF EDGEWATER National Register shall be subject to regulations and procedures 1n a regulation to be adopted by November 1 1990 16. 92-5.010 (c) (b) 7. An objective that provides for'the formulation of housing implementation programs is not included. Recommendation Include a.specific, measurable objective, based on. relevant data and analysis, to provide for housing implementation programs. RESPONSE: Rule 9J-5, FAC, requires an objective providing for the formulation of housing implementation programs. These are Programs designed to bring about the implementation of the objectives and activities specified in the goals, objectives, and policies of the Housing Element. This does not, however, mean that the city must undertake specific activities (such as construction of housing) unless those activities are specified elsewhere in the Element. This need is best addressed by assigning responsibility for housing implementation activities to a city official in addition to his other duties. CORRECTED TEXT: Page 35, New Objective Policy 11,F: 58 CITY OF EDGEWATER 17. 93-5.010 (3) (c) 1. Policy 1.1 concerning the provision of technical assistance and incentives to the private sector, is vague because it does not state who will provide the technical assistance and incentives, or explain what incentives will be provided. Recommendation Revise Policy 1.1 to state who will provide technical assistance and incentives, and explain what incentives will be provided. RESPONSE: Provision of technical assistance is the type of activity that can be conducted by the Housing Official mentioned in the response to objection 16, above. CORRECTED TEXT• Page 32 Pe}iey-}-}- Provide-leehniea�-aeaiskenee-end-incen{}ves-{e-{he priva{e-eee{ar--{e-mainkain--a-hedsinq--p roddetion-eapae}ky-}eve} saffieienk-ke-meek-khe-demand- under Objective 11. 18. 9J-5.010 (3) (c) E. Policy 3.2, which amends the zoning ordinance to permit the development of low-cost housing, is vague because it not clear to what the terms "reasonable densities" and "appropriate and selected areas" may refer. 59 CITY OF EDGEWATER Recommendation Revise the policy to clarify the meaning of the terms "reasonable densities" and "appropriate and selected areas." RESPONSE: Note that objection 22 addresses this same exact concern. CORRECTED TEXT: Page 33 Pe}icy-372T Amend --- the --- Toning --- ordinance --- to--perm}t--the dere}opment--of--}oa-coat--homing--n{--reaeonnb}e--den�itiee--in appreprin{e-end-ee}ee{ed-erena- 19. 9J-5.010 (3) (c) 3. Although Polices 10.1 through 10.3 address the improvement and protection of historically significant housing, a policy has not been included to address the identification of historically significant housing by implementing the survey identified in Objective 10. Recommendation Include an additional policy to address the identification of historically significant housing. This policy should provide a program or activity for the implementation of the historical housing survey that is suggested in the Objective 10. RESPONSE: The identification of historic structures, including historically significant housing, is addressed in the revised Objective 10 under Objection 15 above. !Z CITY OF'EDGEWATER A policy establishing principles to guide conservation, rehabilitation and demolition program techniques and strategies is not included. Include a policy, based on relevant data and analysis, establishing principles that would be used to guide any housing conservation, rehabilitation or demolition activities that may be needed in the City of Edgewater. Objections 10 and 14, above address the deficiencies in Objectives 8 and 9. Our recommendation for these objectives is to rewrite them and their associated policies. See Objection 10 for recommendations. 21. 9J-5.010 (3) (c) 5. Policy 3.1 is vague because it does not state how the city will "assist non-profit agencies to plan and develop low-cost housing and support services." Revise the policy to state how the city will assist non-profit agencies to plan and develop low-cost housing and support services. RESPONSE: The policy should identify specific forms of assistance the city will give. CORRRCTEn TEXT: Page 33 Policy-3:}- Assist--non-profit--agencies--to--plan-and-deve}op low -cost -housing -and -support -services: 61 CITY OF EDGEWATER eendikiens---Phis-assiskanee-shaii--be--erevided--bv--khe-Haestwe Bffieiei-di�enssed-antler-Bb3eekive-ti- 22. 9J-5.010 (2) (c) 5. As stated previously, Policy 3.2, which amends the zoning ordinance to permit the development of low-cost housing, is vague because it not clear what the terms "reasonable densities" and "appropriate and selected areas" may be referring to. Recommendation Revise the policy to clarify the meaning of the terms "reasonable densities" and "appropriate and selected areas." RESPONSE• This has been addressed under Objection 18 above. 23. 9J-5.010 (3) (c) 6. Policy 2.4, which states "provide supporting infrastructure to mobile home parks and traditional residential subdivisions" is vague because it does not state how or when the infrastructure will be provided, nor does it define the term "traditional residential subdivisions." From the information provided, it is not clear if infrastructure will be provided to these areas before it is provided to multi -family and nontraditional nonresidential areas, or simply withheld from areas that are not mobile home parks or traditional residential subdivisions altogether. Recommendation Revise the policy to clarify when and how the infrastructure will be provided, and to define the term "traditional residential subdivisions." RESPONSE• The policy as written is confusing and unnecessary and should be deleted. 62 CITY OF EDGEWATER CORRECTED TEXT• Page 32 Pe4iey-2-4a Provide--supporting--infrastrnelnre-te-mebi}e-home parka-end-{retlitiene}-res}den{ia}-snbd}visiens- 24. 9J-5.010 (3) (6). Policy 7.2, concerning the distribution of group homes throughout the City, is vague, because it does not state specifically, how group homes would be distributed. In addition, the meaning of the last sentence of the policy, which states "to that end, appropriate recommendations will have to be made in the Future Land Use Element, and revisions to the zoning ordinance will have to be implemented" is unclear. The policy does not state what "appropriate recommendations" will have to be made, or state whether these recommendations have already been added to the Future Land Use Element. Recommendation Revise the policy to state how group homes will be distributed and clarify what recommendations have been or will be made to the Future Land Use Element. RESPONSE: The objection calls for the clarification of the policy. Note that objection 25 is related in that it indicates the lack of policies for the location of group homes and foster care facilities addressing necessary infrastructure. These policies are provided in the recommended revision. CORRECTED TEXT- Page 34 Pa}}ey-9-2: B}stribnte--group--homes--egniteb}y-throughen{-the ei{y-te-provide-far-a-variety-ef-ne}ghberheed--settings-far-group homes --- and --- te--- ava}d --- undue---eeneentra{ions--in--ind}v}duo} neighborhoods---�o--the{--end,--appropriate--reeemmendetiens-wi}} have-to--be-made-}n-{he-Fntnre-Sand-Use-E}amen{�-and-revisions-{e the-xening-erd}nanee-wi}}-hove-to-be-imp}amen{ed- Policy 7.2: Amend the land development regulations 63 CITY OF EDGEWATER 25. 9J-5.010 (3) (c) 6. A policy has not been included to establish principles and criteria guiding the location of group homes and foster care facilities licensed by HRS that include supporting infrastructure and public facilities. Recommendation Include a policy to establish principles and criteria guiding the location of group homes and foster care facilities that include supporting infrastructure and public facilities. RESPONSE: This objection has been addressed under objection 24 above. SANITARY SEWER SUB -ELEMENT A. OBJECTIONS Data and Analysis 1. 935.011 (1) (d). Table A-7, concerning the adequacy of major pump stations and force mains, is based on peak daily flow. According to DER, however, good engineering design of pump stations and force mains should be 'based on peak hourly flow because design based on peak daily flow may not have adequate capacity. In addition, the table does not address all transmission facilities needs. Recommendation The plan should include the following for all collection, treatment and disposal facilities: (a) geographic service area; (b) design capacity of the facilities, which for 64 CITY OF EDGEWATER 104 N.RIVERSIDE DRIVE P.O. Box 100 - Edgewater. Florida 32132-0100 (904) 428-3245 SunCom 371-7005 October 7, 1992 Kenneth D. Goldberg Assistant General Counsel Department of Community Affairs 2740 Centerview Drive - Tallahassee, Florida 32399-2100 Re: Proposed Comprehensive Plan Amendment Dear Mr. Goldberg: This letter is written at your request in confirmation of our conversation on October 1, 1992. Our discussion at that t_ e involved issues raised in Paragraph A.3. of the August 11, 1992 Objections, Recommendations and Comments Report related to the £ carat of the City's comprehensive plan. Initially, Staff is concerned that these issues were raised for the first time in this Report and did not appear in the Settlement Agreement. With that said, upon approval of the plan by the Department, the City has every intention of consolidating the proposed plan, the response document and amendment into one document. Such consolidation shall include a summary of relevant documents with a revised table of contents to indicate where plan requirements, including maps and tables can be found. (See Part C of attached Ordinance No. 92-0-3.) However, it is financially and practically unfeasible for the City to effect the consolidation at this time. The City's computer system, which included the hard drive on which the comprehensive plan was stored, was hit by lightening recently. Accordingly, the plan in its entirety must be retyped. Consolidation of the various parts will be incorporated into this process which has already been initiated. From our conversation on October 1, 1992, I understood you to say that if after review of the proposed amendment the only outstanding issue is the format, approval should be granted. Please advise me if I am incorrect. Thank you for your assistance. Sincerely, Krista A. 41 orey City Attorney i RAS Attachment Copy to: Robert Pennock CITY OF EDGEWATER 104 N. RIVERSIDE DRIVE P.O. Box 100 - Edgewater. Florida 32132-0100 (904) 428-3245 SunCom 371-7005 Enclosed please find five (5) copies of the adopted comprehensive plan amendment each containing: * Ordinance 92-0-3 " Exhibit A - Future Land Use Element, Coastal Management Element, Conservation Element, and Capital Improvement Element. * Exhibit B- Housing Element Exhibit B (continued) Housing Element Response Document ' Policy 4.3 - Capital Improvement Element (located on page 10 of Exhibit A) * Revised maps C-2 and C-3 * As requested, one of the five copies was sent to the Executive Director of the East Central Florida Regional Planning Council comp.cvr /amp EMIBITA CITY OF EDGEWATER These are the Remedial Plan Amendments required to bring the Edgewater Comprehensive Plan into compliance. Please note that language stricken--khrongh is a deletion from the existing text and language underlined is an addition to the existing text. Language bold and underlined are deviations from the Exhibit B of the stipulated settlement agreement. Future Land Use Element Policy Changes Policy 2.6: Development on lands designated conservation adjacent to the Indian River Lagoon will be limited to reasonable access to the water. Reasonable access shall include no more than 10% or 25 feet, whichever is greater, of the shoreline within a site. Access includes docks, boat ramps, pervious walkways, and elevated_ walkways. The remainder shall be maintained in unaltered native vegetation. Policy 5.8: The maximum permissible densities and intensities of land use permitted in the areas designated on the Future Land Use Map shall be as follows: Low Density Residential: 1.0 to 5.0 units/gross acre; Medium Density Residential: High Density Residential: Commercial: Industrial: Planned Industrial Development: 5.1 to 8.0 units/gross acre; 8.1 to 12.0 units/gross acre; .30 maximum FAR* .35 maximum FAR* .15 maximum FAR* .30 maximum ISR* Other Uses: Intensity of Development for recreational, institutional, and public or semi-public uses shall not exceed a CITY OF EDGE'v ATER Floor Area Ratio of .5, provided that the land development regulations shall establish procedures for increases in such Intensity is approved by the Land Development and Regulatory Agency following a properly noticed public hearing. Maximum denait}ea-in-conservation-arees--are-described--in-Po}icq--4-3-of the--Eonservat}en--E}emenk. Maximum densities in conservation Policy 2.6 above. The land development regulations may provide for up to a twenty- five percent increase in the maximum permitted intensity of commercial or industrial development where exceptional provisions are made for buffers, landscaping, open space, and protection of existing native trees. Provisions of such additional amenities shall be in addition to minimum requirements. The land development regulations may also provide for up to twenty-five percent increase in permitted residential densities for mixed use planned unit developments. Specific standards and procedures for allowing such increases shall be included in the land development regulations. *Floor Area Ratio is the ratio of gross area of buildings on a site (ie: area of the building footprint times number of floors) divided by the gross area of the site itself. *lmoervious Surface Ratio is calculated by dividing the impervious surface by the gross area of the site. Policy 5.11: Mixed use planned unit developments shall only be permitted where the Local Planning Agency and the City Council find that such developments will be beneficial to the community and be compatible with the overall character of the surrounding area. Policy 5.12: Residential developments of 50 dwelling units or more may include non- residential uses. These uses shall be treated as mixed use planned unit developments and shall require an amendment to the Future Land Use Maw Such uses shall be known as Residential Mixed Use Planned Unit Developments. CITY OF EDGEWATER, Policy 5.13: The ratio amount of non-residential uses in Residential Mixed Use Planned Unit Developments is permitted as follows: A. For developments of between 50 and 250 dwelling units, commercial office uses may be Permitted, not to exceed 500 square feet of gross floor area for each dwelling unit. B. For developments of more than P50 Telling units, retail uses may be permitted, not to exceed 100 square feet of gross floor area for each dwelling unit. C. For developments of more than P50 dwelling units, commercial office and retail uses may be combined. The amount of office space shall be set out as in A above, and the amount of retail space shall be limited to 20% of the total gross office floor area. Policy 5.14: Non-residential developments of 4 acres or more may include residential uses. These developments shall be treated as Mixed Use Planned Unit Developments and shall require an amendment to the Future Land Use Man. Such uses shall be known as Commercial Mixed Use Planned Unit Developments. Policy 5.15• Policy 5.16• For Commercial Mixed Use Planned Unit Developments, the minimum amount of gross residential floor area shall be 40% of the total gross floor area of the development. CITY OF EDGEWATER Policy 5.17: Specimen trees are defined as any tree determined to have a remaining life span equal to or greater than that of the proposed structures on site, or any tree which is unique by reason of age, size, rarity, or status as a landmark; or the following species of trees with the minimum specified diameter at breast height: Common Name Botanical Name DBH Swamp Bay Sycamore Magnolia (Ouercus laevis) 12" or larder (Ouercus spp.) 18" or larger (Ater spp.) le" or larger (Liguidumbar styracflua) 10" or larger (Clarva spp.) 18" or larder (Ulmus spo.) 18" or larger (Gordonia lasianthus) 12" or larger (Magnolia virginiana) 12" or larger (Persea borbonia) 12" or larger (Persea ❑alustris) 12" or larger (Platanus occidentialis) 18" or larger (Magnolia ❑randipflora) 12" or larger The following table sets forth the minimum requirements for the protection of specimen trees in the PID: Number of Specimens/Acre Requirements Protection Less than 3 100% 3.0 to 5.0 80% 5.1 to 0.0 65% 6.1 or more 65% Test Changes Page 38 FUTURF CONSERVATION LAND USF This land use category includes those lands which contain valuable and threatened natural resources, such as floodplains, estuarine values, and unique ecological communities. There -are severe}--very--noteworthy--ereee--to--be--eonoidered-for-poeeib}e c on9ervntion-de�ignetzons--on--the--Fntnre--band--tl�e--Map.----The }nrgeat-nree---ie-in-the-ngrthweet-section-oF-the-city-where there pre-}erge-trecte--of-nndeyeioped-lend-which--nre-ecq}ogicn}}y- CITY OF EDGEWATER nnigoe-----A--}arga--hardwood--hammock--which--provides-exec}}ent wi}d}ife--hnbitet--nnd--pnssive---recreations}--opportunities--is }oersted--in--this--area-----f his--area--is--within--the--}gB-genr f}oodp}sin- Another-area-sa}table-for An area with significant conservation use potential is along the Indian River shoreline. This area is considered for conservation use because of its unique value as public access to the estuary, for the protection of shoreline vegetation and because it is within the 100-year floodplain. The land areas on the Future Land Use Map have been identified in consideration of the foregoing factors and methodologies explained in greater detail in the Conservation Element. Page 54 PLANNFD INDUSTRIAL DEVELOPMENT (PID) This land use category is intended to permit industrial development that maximizes compatibility within a natural setting. This designation will he applied to the large tract of vacant land in the northwest corner of the city. hackberry, elm, live and laurel oaks, bay's and saw -palmettos. In 1981 trees were harvested from a large portion of the tract owned by the Florida East Coast Railway. In these areas there is mine shell. Sanitary Sewer, Solid Waste, Drainage, Potable Water, Natural Ground Water Acquifer Recharge Element Sanitary Sewer Sub --Element Policy Changes Policy 3.4• Policy 3.5: The City shall commence construction of the wastewater collection system for Florida Shores in 1991. The nroiect will be completed Prior to the close of 1993. Drainage Sub -Element Text Changes Table C-1 has been revised to show adopted LOS (see attached). The titles for maps C-2 and C-3 have been corrected (see attached) Coastal Management Element Policy Changes Policy 1a.2• Policy 1a.3• No more than 30% impervious surface shall be allowed within 100 feet of the mean high water line. L' Policv 4.C6: The known or predicted Coastal High Hazard Areasincludethose parts of the City that are subject to storm surge inundation from Category 3 - hurricanes or less (see attached map) Objective 4D: No public funds shall be used for infrastructure and services which would subsidize increased development densities and intensities in the Coastal High Hazard Area. Policy 4D.1: No new public facilities shall be located in the Coastal High Hazard Area that would subsidize private development. Policy la.l: Hardening of the estuarine shoreline shall be allowed only when erosion is causing a serious significant threat to life or property. When hardening of the shoreline is approved stabilization methods, other than vertical seawalls and bulkheads, shall be used. Test Changes Page 50 HURRICANE EVACUATION CLEARANCE TIMES accuracy. Conservation Element Text Changes Page 51 OPEN SPACE CONSERVATION Open space within urban areas provide many intangible benefits which enhance a city and its economy. Open spaces act as buffer areas between conflicting urban uses, provide recreation opportunities, serve as wildlife habitant, and provide aesthetic benefits which promote tourism and which all City residents can enjoy. Currently, the City of Edgewater has no publicly owned lands which can be called conservation areas. However, there still are some viable open spaces within the City available for this CITY OF EDGEWATER designation. Conservation areas can be purchased outright for preservation or can simply have development restrictions placed on them, through purchase of development rights or through land use zoning controls. Conservation areas should be located in areas wh}ch--ere--moat--env}ronmenIn}}q--aenaitive--oath--na--in f}oodp}n}na-or where unique ecological communities still exist. Large tracts of land within Edgewater are becoming scarce and it is important that the city designate conservation areas before these lands become developed or disturbed. the 450 acre site has been altered by human activity. The tract has been excavated to a significant extent. A borrow pit has been created on the site for the mining of coquina. In addition, canals have been cut through the tract in order to drain the land. Just under 40 acres of the site have already been provide a measure of ❑rotection for the remaining resources. This issue is addressed in the Future Land Use Element in greater detail. Turnbull Hammock, to the west of the city, is an ecologically unique area which is very environmentally sensitive. Part of the hammock, south of Edgewater, is already partially owned by the SJRWMD. The portion of the hammock directly west of Edgewater is located in the county and does not currently have any protection from development. The city should consider coordinating with the county through its land acquisition program to purchase this portion of the hammock for preservation purposes. The City of Edgewater does not presently have many recreational lands which can be used for passive recreational activities, such as picnicking, hiking, and nature trails. The purchase of part of Turnbull's Hammock could supply these passive recreational needs as well as preserve an environmentally sensitive area. The-elher-nete6}e-area--far-eenaervetion--}s-in--the-�orthweatern corner-of--khe-eitq----t:nrge-trneta-of-nndeve}oped-}and-which-are eee}egicn}}q-enigne-can-be-foend-here---A--}erge-hardwood-hammock CITY OF EDGEWATER These ---g- ------ -- land—:...euss_- -- --- --- The Turnbull Hammock is not the only _ - __ opportunity for conservation or open space protection. Smaller areas within the city can be designated as conservation areas to act as buffers between urban uses, to provide wildlife habitat, and to provide aesthetic enjoyment for residents. Smaller parcels located on the Indian River shoreline should also be considered for conservation due to their unique value as public access points to the estuary, for the protection of shoreline vegetation, and because they are located in the 100 year floodplain. Capital Improvement Element Policy Changes Policy 3.5: The city shall not use proceeds associated with long-term debt for current operations. Policy 3.6: The city shall confine long-term borrowing to capital improvements too costly to be financed from current revenues. Policy 3.7: The city shall use revenue.special assessment, or other similar bonds to finance capital improvement Proiects instead of general obligation bonds whenever there is sufficient proceeds associated with a Project to justify the use of self-supporting long-term debt. Policy 3.8: The city shall nay back bonds within a period not to exceed the expected useful life of the capital improvements which they finance. Policy 4.3 On -site stormwater management facilities shall accommodate runoff in accordance with the requirements of Chapter 17-25, F.A.C., without the exemptions contained therein. 10 CITY OF EDGEWATER Policy 4.4: New development in the Florida Shores area of the city will not be required Policy 5.1• Text Change The city shall not construct any oublic facilities in the Coastal High Hazard Area that will serve to subsidize private development. Page 215 of the response document will be revised as follows: 1) Additional deferral of projects to later years so long as the adopted levels of service can continue to be met. compplan/futurelanduse 11 CITY OF EDGEWATER TABLE C-1 CITY OF EDGEWATER STORMWATER SYSTEM ' CAPACITY ASSESSMENT ' Existing Existing Adopted Capacity LOS LOS Drainage Feature (CFS) Level Level 18th Street System Channel El 429 C 8 977 E A 723 A A 1363 8 B Channel E2 677 A A Channel E4 234 A A 257 C B Channel ES 421 C E ' Channel E6 479 C B Channel E7 259. C g Channel E9 204 C B Channel E10 122 C li Channel Ell 244 C B Channel E12 129 C g Channel E13 175 C g Gabardy System Channel GI 214 C B 11t C B 125 C g Channel G2 114 C 8 35 D 8 Channel G3 — D B 124 C B Channel GS 35 C B Channel G6 78 D B Turnbull Hammock System Channel T1 154 C 8 Channel T2 138 C H Channel T3 354 C B Channel T6 142 C g SOURCE: Stormwater Master Plan, DRMP: Inc 1990 NOTES: The oroosed LOS level indicates the ultimate goal of the city and is based on the adopted design storm for the city's service area (25 'wear freouencv, 24 hour duration)' 122