EVALUATION AND APPRAISAL REPORT TOWN OF BRINY BREEZES, FLORIDA

Transcription

1 EVALUATION AND APPRAISAL REPORT TOWN OF BRINY BREEZES, FLORIDA Prepared by the Planning & Zoning Board/Local Planning Agency of the Town of Briny Breezes Revised, April 15, 2010

2 Membership Roster Planning & Zoning Board/Local Planning Agency Town of Briny Breezes April 15, 2010 Jerry Lower, John Stanley, Jim Leming, Ira Friedman, Lee Godby, Jim Phillipi, Chairman Vice Chairman Member Member Member Alternate Member Alternate Member Angela Usher, Representative from Palm Beach County School District Secretarial Assistance by Kathleen Bray, Town Clerk pro tem Legal Assistance by Jerome F. Skrandel, Town Attorney i

3 TABLE OF CONTENTS SUBJECT PAGE 1. CONSIDERATIONS RELATED TO THE EVALUATION 1 AND APPRAISAL REPORT PROCESS Town's Origin and Location 1 Town's Present Comprehensive Plan 1 Purpose of the Report 1 Revision of the Town's 2007 EAR 4 Major Issues for EAR Review 4 Public Participation Process 4 Relevant Changes in Growth Management Laws 5 Consideration of the Ten-Year Water Supply Plan 5 2. REVIEW OF FUTURE LAND USE ELEMENT 6 Introduction 6 Land Ownership 6 Existing Land Use Single Family Limitation 7 Population 10 Planning for the Town s Future Development 14 Planning for Conventionally Constructed Multi-Family Housing Units 16 Sites for Future Development - Vacant Land 20 Sites for Future Development Annexation 20 Possible Town Growth by Annexation 21 New Site Locations by Redevelopment of Obsolete Areas 22 Other Land Utilization Characteristics 29 Natural Resources Historic Resources 29 Recreational Facilities 29 Public Facilities and Services 31 Flood Prone Areas 32 Recommendations REVIEW OF TRANSPORTATION ELEMENT 33 Introduction 33 Jurisdiction of Existing Roadway System 33 Municipal Traffic Control Agreement 34 Mapped Data 34 Street Pattern 34 Traffic Volumes 36 Accident Data and Traffic Safety Concerns 37 Level of Service 38 Existing Transportation Needs 39 Future Needs 40 Recommendations 41 ii

4 TABLE OF CONTENTS SUBJECT PAGE 4. REVIEW OF HOUSING ELEMENT 42 Introduction 42 Existing Conditions - Housing Types 42 Housing Conditions 44 Housing Values 44 Housing Rentals 45 Mortgage-to-Income Ratios 45 Rent-to-Income Ratios 46 Previous Redevelopment Strategies 46 Present Redevelopment Strategies 46 Other Housing Data 47 Needs Analysis - Group Homes and Subsidized Housing, 47 Affordable Housing 47 Housing Needs 48 Private Sector Delivery Process 48 Identification of Conservation, Rehabilitation or Demolition Activities 48 Elimination of Substandard Housing 48 Recommendations REVIEW OF INFRASTRUCTURE ELEMENT 49 Introduction 49 Wastewater Facilities Sub-Element 50 Collection System 50 Treatment System 51 Needs Assessment 52 Solid Waste Sub-Element 52 Collection System 52 Needs Assessment 54 Potable Water Facility Sub-Element 55 Potable Water Supply 55 Water Distribution System 56 Needs Assessment 57 Drainage Facility Sub-Element 57 Rainfall 57 Terrain 57 Run-Off Quantities 58 Drainage Facilities 58 Needs Assessment 59 Natural Groundwater Aquifer Recharge Sub-Element 59 Groundwater 59 iii

5 TABLE OF CONTENTS SUBJECT PAGE 5. REVIEW OF INFRASTRUCTURE ELEMENT, continued: Needs Assessment 60 Recommendations REVIEW OF COASTAL MANAGEMENT ELEMENT 61 Introduction 61 Water-Dependent and Water-Related Uses 61 Land Uses and Facilities Related to the Coastal Zone 61 Coastal Construction Control Line 65 Public Beach Access 66 Private Beach Access 66 Public Access to the Intracoastal Waterway 67 Private Access to the Intracoastal Waterway Shoreline 67 Conflicts Among Shoreline Uses 67 Historic Resources 67 Hurricane Preparedness 68 Element Evaluation 68 Recommendations REVIEW OF CONSERVATION ELEMENT 69 Introduction 69 Conservation of Vegetative Cover 70 Relationship to Coastal Management Element 70 Environmental Setting 70 Natural Water Resources 71 Atlantic Ocean 71 Intracoastal Waterway 71 Geology 72 Coastal Ridge Vegetation 72 Air and Air Quality 72 Countywide Sources of Air Pollution 73 Briny Breezes Air Quality 73 Soils and Soil Erosion 73 Floodplains 73 Minerals 76 Hazardous Waste 76 Potable Water Needs and Sources 76 Comments on the Ten-Year Water Supply Plan 76 Resource Protection Standards 79 Recommendations 79 iv

6 TABLE OF CONTENTS SUBJECT 8. REVIEW OF RECREATION AND OPEN SPACE ELEMENT Introduction Existing Conditions Public Regional Facilities Beach Access Pedestrian Trails Open Space along Intracoastal Waterway Needs Assessment Recommendations PAGE REVIEW OF INTERGOVERNMENTAL COORDINATION ELEMENT 83 Introduction - Existing Conditions 83 Recommendations REVIEW OF CAPITAL IMPROVEMENT ELEMENT 84 Introduction 84 Inventory 85 Needs from Other Elements 85 Transportation Circulation 85 Infrastructure 85 Potable Water System 85 Comments on the Ten-Year Water Supply Plan 86 Solid Waste Removal 87 Storm Drainage 87 Sanitary Sewer System 87 Recreation 87 Public Education and Health 87 Financial Resources 88 Property or Ad Valorem Taxes 88 Charges for Services 88 Intergovernmental Revenues 88 Miscellaneous General Fund Revenues 88 Borrowing 88 Federal Funding 89 Town Policies and Practices 89 Fiscal Implications of Deficiencies and Cost Estimates 89 Public Education and Health Care Facility Implications 89 Land Use Plan Implications 89 Revenue Projections 90 v

7 TABLE OF CONTENTS SUBJECT 10. REVIEW OF CAPITAL IMPROVEMENT ELEMENT, continued: Tax Base Debt Capacity Implications from Town's Fiscal Analysis Implementation of Five-Year Schedule of Capital improvements Programs Recommendations PAGE INDEX OF MAPS AND CHARTS FIGURE NUMBER Figure 1 - Regional Location Map for the Town of Briny Breezes Figure 2 - Local Map of Town of Briny Breezes Figure 3 - Detail Map Showing the Town s Layout Figure 4 - Existing Land Use Map of Town of Briny Breezes Figure 5 - Proposed Future Land Use Map of Town of Briny Breezes Figure 6 - Potential Redevelopment Area Designated as Section 6, Showing Present Land Uses Figure 7 - Two Enclaves within the Town Boundaries Figure 8 - Recreation Facilities Figure 9 - Road Network for the Town of Briny Breezes Figure 10 - Location of Water-Dependent & Water-Related Uses within the Town Figure 11 - Location of the CCCL in the Town of Briny Breezes PAGE vi

8 INDEX OF TABLES TABLE NUMBER PAGE Table 1 - Snowbirds and the Census 11 Table 2 - Population Estimate from Town s 1989 Plan 12 Table 3 - Town s Estimated Population for Table 4 - Projected Population by 2015 at End of Five-Year Planning Period 25 Table 5 - Projected Population by 2020 at End of Ten-year Planning Period 28 Table 6 - Daily Traffic Volume 37 Table 7 - Standards for Level of Service 39 Table 8 - Level of Service for State Road Al A 41 Table Census Data, Town of Briny Breezes 43 Table 10 - Sewage Flow Projections for Town of Briny Breezes 52 Table 11 - Solid Waste Disposal 55 Table 12 - Town Suitability for Listed Species 63 Table 13 - Flood Insurance Classification Zones for Briny Breezes 74 Table 14 - Flood Insurance Rate Map 75 Table 15 - Current Water Consumption Rate for Town of Briny Breezes 77 Table 16 - Financial Data for the Town of Briny Breezes 91 INDEX OF APPENDICES Appendix A Town Ordinance No. 1 08, Public Participation Procedures Appendix B Amendments to Chapter 163, Florida Statutes, and to the Florida Administrative Code Relevant to the EAR vii

9 EVALUATION AND APPRAISAL REPORT TOWN OF BRINY BREEZES, FLORIDA 1. CONSIDERATIONS RELATED TO THE EVALUATION AND APPRAISAL REPORT PROCESS Town s Origin and Location The Town of Briny Breezes was incorporated on March 19, 1963 pursuant to former provisions of Chapter 165 of the Florida Statues. The governing officials consist of a Town Mayor and five Aldermen who are elected at large. The Town is located on the Atlantic Ocean in the southern part of Palm Beach County. On the following pages, Figure 1 is a regional location map for the Town, and Figure 2 is a local map showing the Town in reference to adjoining cities and geographical features. Town s Present Comprehensive Plan The Town s present Comprehensive Plan was adopted in January, An Amended Comprehensive Plan was given preliminary adoption by the Town Council by Ordinance No on April 27, 2007 and submitted to the Department of Community Affairs (DCA) for review and comment. On June 29, 2007, the DCA issued its Objections, Recommendations and Comments (ORC) Report, finding the Town s Plan Amendment to be inconsistent as submitted. The Town took no further action on the recommendations contained in the DCA s ORC Report, deciding to turn its attention to the completion of the process to complete the adoption of the Town s Evaluation and Appraisal Report. Purpose of the Report The purpose of this Evaluation and Appraisal Report (EAR) is to determine how well the present Comprehensive Plan has served the Town and to provide statements to update the Plan in regard to anticipated increases in population, the extent of developable land within the Town where that population increase will occur, and the financial ability of the Town to implement the anticipated increase in infrastructure necessary to maintain its current, satisfactory levels-of-service to the expanded population of the future. 1

10 Figure 1. Regional Location Map for Town of Briny Breezes 2

11 Figure 2. Local Map of Town of Briny Breezes TO WEST PALM [3(-_ht.Th LAKE WORTH BOYNTON it - HBEACH: \. oc.s1-10ppitt,c,i.;. 'AREAS WOOLBRGHT ROAD [MAY BEACH AT 1/44. 'IC PJL

12 Revision of the Town s 2007 EAR The work on the Town s EAR was done by the Town s Planning and Zoning Board, acting as the Local Planning Agency (P&Z/LPA). It represents a revision to that earlier EAR dated April 19, 2007 which the Town adopted by Resolution No on April 26, 2007, and submitted to the Department of Community Affairs (DCA) for review and comment. The DCA issued its Final Sufficiency Report Letter on June 29, 2007, which found the document to have six sufficiency issues and made its Recommendations for compliance. The issues identified were: Population Growth, Financial Feasibility of Infrastructure, Relevant Changes in Growth Management Laws, Assessment and Shortcomings of Each Element, Consideration of the Water Management District s Water Supply Plan, and Evaluation of Property Rights in Coastal High Hazard Areas. All of theses sufficiency issues are addressed in this revised EAR. Major Issues for EAR Review In deciding upon the scope of this Report, the P&Z/LPA selected the future development of the Town as its one specific issue of major concern. The P&Z/LPA will also analyze and evaluate those municipal planning issues which logically arise from a discussion of the several elements comprising the Town s Comprehensive Plan, namely: Future Land Use, Transportation, Infrastructure, Coastal Management, Conservation, Recreation, Intergovernmental Coordination, and Capital Improvements. Public Participation Process Town Ordinance No adopted the public participation procedures that were followed by the P&Z/LPA in its preparation of this Report. A copy of this Ordinance is attached as Appendix A. The Ordinance is patterned after Section , F.S., and is designed to provide the public with the necessary notice and opportunity to be heard in the EAR review process conducted by the P&Z/LPA. In conducting its work to prepare the EAR Report, the P&Z/LPA conducted a series of monthly public meetings from April, 2008 to December, 2008, and focused its attention on each of the individual elements which comprise the Town s present Comprehensive Plan. The P&Z/LPA sent the Town Council reports of each segment of its work and a preliminary Evaluation and Appraisal Report, marked Revised, December 11, 2008, for the Council s review and approval. In May, 2009, the Town Council submitted a Proposed Evaluation and Appraisal 4

13 Report to the Department of Community Affairs, with copies to interested governmental agencies, for preliminary review and informal comments. In September, 2009, the P&Z/LPA resumed its meetings to review the comments received on the Proposed Evaluation and Appraisal Report. The P&Z/LPA continued meeting intermittently until April, 2010, when it approved a final EAR report and recommended its adoption to the Town Council. For each meeting of the P&Z/LPA and the Town Council on the review of the EAR, public notice of the meetings was given by posting a written notice thereof in public display at the entrance to the Town Hall and at two other prominent places within the Town at least three (3) days before the meeting date. The notices contained sufficient information to identify the date, time, place, and general purpose of the public meetings and were presented in the form of a copy of the meeting agenda. A roster of names was kept for those in attendance who availed themselves of the opportunity to address their comments and remarks to the P&Z/LPA and the Town Council members. It is the practiced policy of the P&Z/LPA and the Town Council to comply with the strict requirements of the law in giving proper notice of its public meetings and whenever publication of a notice of a public meeting or hearing is required in the form of a legal advertisement in a newspaper printed in Palm Beach County, the P&Z/LPA and the Town Council do so. Relevant Changes In Growth Management Laws There have been many changes in the growth management laws since the adoption of the Town s present Comprehensive Plan in January, A list of the amendments to Chapter 163 Florida Statutes and to the Florida Administrative Code that are relevant to the Town s EAR Report is contained in Appendix B Consideration of the Ten-Year Water Supply Plan The P&Z/LPA and the Town Council recognize that the Town of Briny Breezes is required to amend its Comprehensive Plan by adopting a Water Supply Facilities Work Plan Amendment that meets the requirements of the South Florida Water Management District. The EAR is not intended to present proposed amendments of the Comprehensive Plan, so the Water Supply Plan 5

14 will not appear in this report. It will be prepared and submitted as separate document. Matters related to the Ten-Year Water Supply Facilities Plan are discussed in the review of two elements in the EAR report. The main discussion is in the review of the Conservation Element, where the P&Z/LPA has included an assessment of the Town s current and projected water needs and sources. The subject is also addressed in the review of the Capital Improvements Element, where the P&Z/LPA discussed the likelihood for any capital improvement projects that may be needed within the five-year and ten-year planning periods to insure the continued availability of potable water supplies for the projected increase in the Town s size and population. 2. REVIEW OF FUTURE LAND USE ELEMENT Introduction The Future Land Use Element is a major local issue for the Town s Evaluation and Appraisal Report. It is also regarded by the Town as one of the most important elements to be addressed in the Report because it impacts directly on the future growth and development of the Town. The Town of Briny Breezes is an oceanfront, residential mobile home community located in what is referred to as the barrier island extending between the Atlantic Ocean and the Intracoastal Waterway in south central Palm Beach County. The Town is divided to the east and west by State Road A1A which is the primary north/south transportation corridor for the Palm Beach County portion of the barrier island, which extends from Boca Raton on the south to the Town of Palm Beach on the north. The municipality immediately north of the Town is the Town of Ocean Ridge, which is primarily a residential community made up of a mix of single family and multifamily dwellings. At the Town s south boundary, a pocket of unincorporated Palm Beach County is located on the east of State Road A1A, and the City of Boynton Beach is located on the west side. Land Ownership The entire land area of the Town of Briny Breezes is owned by Briny Breezes, Inc., a Florida corporation. In the late 1950s, the Corporation purchased a 46.5 acre tract land in unincorporated Palm Beach County. The land had been subdivided in 1926, but the plat had been 6

15 abandoned. The Corporation decided to operate a mobile home subdivision without undertaking a new formal subdivision platting procedure, and it allocated the property into 550 separate mobile home sites. In 1963, a select group of citizens, acting as freeholders and registered voters living in the mobile home park, formally assembled to incorporate the area as a new municipality. The incorporation process was completed under the provisions of Section , Florida Statutes, on March 19, 1963, and the name of Briny Breezes was selected for the Town. Excluding the areas dedicated for public rights-of-way, Briny Breezes, Inc. operates a acre area within the Town s municipal limits as a residential mobile home cooperative under the provisions of The Florida Cooperative Act, Section 719, Florida Statutes. Residential cooperatives operate under a land management system similar to that used by condominium associations. Under the Corporation s overall control, a resident owns his mobile home and has a vested right to occupy the site on which it is located. The homeowner is given one or more voting shares in the Corporation, based on the size of the lot. The Corporation is responsible for maintenance and installation of certain park facilities, such as the internal private street system, automobile parking areas, electrical service hook-ups, sewer and water service hook-ups, the storm drainage system, and the collection and disposal of recyclable solid wastes. The Corporation also provides and maintains the recreational facilities for residents. In its operation of the park as a cooperative association, the Corporation is funded by maintenance assessments billed to the mobile home owners. Existing Land Use - Single Family Limitation All residential structures in the Town are single-family mobile homes, including modular and manufactured home types. Most units were placed on the designated and assigned mobile home sites by The units are generally in sound condition. Many units have been replaced since the initial development, and residents are continually encouraged to replace outdated or deteriorated units. Mobile homes are also replaced when owners desire the features of new models. The relatively low level of damage to the mobile homes and the commercial buildings in the area caused from Hurricane Wilma in October, 2005 has been repaired. 7

16 In 1989 there were 550 officially designated mobile home sites or lots. As of June, 2008, these sites were entirely occupied by 488 mobile homes. Some of the individual, abutting mobile home lots have been combined into single, unity-of-title sites where the owners desired to have more spacious living accommodations. Another reduction in the number of mobile homes occurred when 26 rental sites set aside for recreational vehicles in District V of the Park were eliminated. District V is now vacant land and has been landscaped into an open lawn area. Most lots are rectangular and are 30 to 70 feet in length and 20 to 40 feet in width. The lots range from 800 square feet to 3,000 square feet in area. The present overall gross density of the Town is less than 12 units per acre. When limited to only those areas upon which mobile homes are actually located, the average residential density is about 23 units per acre. The maximum density presently allowed under the Town s Zoning Code in its adopted Land Development Regulations is 26 dwelling units per acre. For the most part, the Town is fully developed except for vacated District V. Adjoining District V are areas of the Town where the existing improvements are nearing the end of their useful life. This presents a realistic opportunity for a program of redevelopment that is presently under consideration by Briny Breezes, Inc. The Town is a unique municipality because of its location, housing type, and the corporation s role in operating the Briny Breezes Mobile Home Park as a cooperative residential development. Figure 3 on the following page is a map showing a detailed layout of the Town. 8

17 Figure 3. Detailed Map Showing the Town s Layout 9

18 Population Among the Corporation s 488 shareholders, some are joint shareholders such as husband and wife, and some shares are held by land trusts for the benefit of multiple owners. There is no way to determine the Town s population from the number of shareholders or mobile home units. Many owners traditionally come to Briny Breezes in the fall months of October and November. This influx increases further from January to April when the population is at its fullest. According to the personnel of Briny Breezes, Inc., during the height of the winter season, the population of the Town peaks at approximately 1,100 persons. With the beginning of May, the population begins to decrease, with the lowest population levels being reached in the period from July through the end of September. A seasonal low of 200 persons during these summer months is not unusual. The population information for the Town s 1989 Comprehensive Plan included data from the 1980 Decennial Census conducted by the U.S. Bureau of Census, which listed the Town s population at 387. The Plan also used the population projections made by the University of Florida Bureau of Economics and Business Research, hereafter referred to as the BEBR, which interpolated the U.S. Census data and estimated the Town s population in 1988 at 369. Based on the private information of Briny Breezes, Inc., the operator of the mobile home park, the Corporation estimated that the Town s actual population at that time was closer to 450 persons, although no actual head count was undertaken. The Town s 1989 Comprehensive Plan recognized that there was an undercount for the population figures stated in both the Census report and that by the BEBR. This was due to the Census procedures that only count a community s resident population, which is defined as those persons living there at least six months of the year. The problem is the subject of a study by Stanley K Smith and Mark House, Bureau of Economic and Business Research, University of Florida, Gainesville, entitled Snowbirds, Sunbirds, and Stayers: Seasonal Migration of Elderly Adults in Florida, Copyright 2006 by the Gerontological Society of America. Table 1 follows as an excerpt from this article to show the impact temporary migrants have on communities such as the Town of Briny Breezes and why their numbers are missed in the census count used to 10

19 determine the Town s population. Table 1. Snowbirds and the Census Florida is a major destination for elderly temporary migrants, but temporary migration of elderly adults is far from unique to Florida. Large seasonal inflows have been reported in Arizona (e.g., Happel & Hogan 2002), Massachusetts (e.g., Cuba, 1989), Texas (e.g., Martin, Hoppe, Larson, & Leon, 1987), Spain (e.g., Gustafson, 2002) and Mexico (e.g., Truly, 2002). Large seasonal outflows have been reported in Arizona (e.g., McHugh, Hogan & Happel, 1995), Minnesota (e.g., Hogan & Steinnes, 1996), and New York (e.g., Krout, 1983). Many other places undoubtedly have large numbers of elderly temporary migrants as well, but they go undocumented because of a lack of data. The numbers are likely to increase over the next few decades ad incomes grow and the baby boom generation ages. The impact of elderly temporary migrants on areas of origin and destination can be substantial (e.g. Happel & Hogan 2002; Monahan & Greene, 1982; Rose & Kingman, 1989). Temporary migration affects traffic patterns, housing prices, retail sales, and the use of public transportation, medical services, recreational facilities, and a wide variety of other publicly and privately provided goods and services. Indeed for many businesses and government agencies, effective budgeting, planning, and analysis cannot be accomplished without an accurate accounting for the number, timing, and duration of temporary moves. Unfortunately, there are no data sources capable of providing complete, consistent coverage of temporary migration in the United States, for elderly adults or any other demographic group. This severely limits researchers ability to analyze the determinants and consequences of temporary migration or even to determine the number and timing of temporary moves. Although investigators can cobble together estimates form a variety of administrative records, business statistics, and sample surveys, those data sources are often insufficient to provide complete, reliable estimates (e.g., Smith 1989). According to the Corporation s private information, this kind of temporary migration of elderly adults and their family members has increased the Town s population for the recent past winter seasons to a peak of approximately 1,100 persons. Since the adoption of the 1989 Plan, the Town has regularly experienced a repetitive cycle of having a low population in the summer and a high number one during the winter months. To compensate for the census data excluding the annual influx of the Town s seasonal population, the 1989 Plan added 519 persons to the census figure for permanent residents, and noted that this was done for planning purposes. The Plan estimated the Town s average population for 1988 at 912 persons, as shown on Table 2 on the following page. 11

20 Table 2. Population Estimate from Town's 1989 Plan Population Projections, High and Low Range Interpolation, Middle Range Average Briny Breezes High Range Total Permanent Housing Units Minus Vacant Units Equals Occupied Units C6 Multiplied by Persons/Unit Equals year round Population Plus Group Quarters Population Plus Seasonal Population Equals Total Population Low Range (n 2008 Total Permanent Housing Units Minus Vacant Units Equals Occupied Units D Multiplied by persons/unit Equals Household Population Plus Group Quarters Population o a. Plus Seasonal Population Equals Total Population Middle Range Avenge )08 High Range Total Population Low Range Total Population , Average Total Population Population Decline o Sources: United States Census Bureau, Census of Population and Housing, Robert K Swarthout, Incorporated,

21 As was done for the 1989 Plan, it is necessary for the EAR to recognize the Town s seasonal population increase for planning purposes. The 2000 Decennial Census by the U.S. Bureau of Census states that for that year the Town had 534 housing units, of which 266 were occupied by 411 persons, for an average household size of 1.55 persons per unit. Information furnished by Briny Breezes, Inc., the operator of the mobile home park, confirms that in 2010 there are 488, rather than 534, housing units in the Town. The last population projection by BEBR estimated the Town s resident population for 2008 at 417. The 2000 Census reported that 49.8% of the Town s housing units were occupied by permanent residents for an average household size for of 1.55 persons per unit. Of the remaining 50.2%, 49.1% of the Town s housing units were available for seasonable, recreational, or occasional use, leaving 1.1% as vacant. Table-3 on the following page is an estimate of the Town s present peak seasonal population for planning purposes. The computation uses 488 for the total number of the Town s housing units in place of the 534 used by the Census, and keeps 417 as the number for the Town s permanent resident population. The example also keeps the same percentage values for the Town s permanent, seasonal, and vacant housing units, as that of the Census. The figure for the average number of persons per household for the permanent residents has been recomputed, using the reduced number of total households. This same figure is used for estimating the low number of persons per household for the seasonal residents. Because most of the Town s winter visitors arrive as family groups that exceed the average household size of the permanent residents, the figure of 2.50 is used for estimating the high number of the seasonal residents. The computation in Table 3 adds 507 seasonal residents to the 417 permanent residents obtained by the Census count, for the Town s estimated population of 924 for the year By comparison, the Town s 1989 Plan added a seasonal population of 500 persons to the census count, for the Town s projected population of 849 persons for the year

22 Table 3. Town s Estimated Population for Total Housing Units x 49.8% = 243 units occupied by 417 permanent residents 488 Total Housing Units x 49.1% = 240 units occupied by additional seasonal residents 488 Total Housing Units x 1.1% = 5 units that are vacant and unoccupied 243 Housing Units occupied by 417 permanent residents = 1.72 persons per unit as the average number of permanent residents per household 240 Housing Units x 1.72 persons per unit = 413 is the low average number of seasonal residents per household 240 Housing Units x 2.50 persons per unit = 600 is the high average number of seasonal residents per household Low Estimate for Peak Seasonal Population: = 830 High Estimate for Peak Seasonal Population: = 1,017 Average Estimate for Peak Seasonal Population for planning purposes: 924 Planning for the Town s Future Development The Town had planned, in the earlier 1981 Comprehensive Plan, that certain existing mobile home areas would be designated for multifamily housing, as a means to encourage redevelopment. That plan assumed that the mobile home units would eventually become obsolete and require removal, leaving the former home-site vacant. Once an enterprising owner was able to accumulate several vacant lots, the plan anticipated that the owner would build multifamily housing. This did not occur because there were few vacant lots and as time went by the outdated mobile homes were replaced rather than removed, without there being any significant consolidation of ownership. Therefore, when the 1989 Comprehensive Plan was adopted, a promising future for multifamily housing development was not expected and it was eliminated from the future land use map. The Existing Land Use Map from the 1989 Plan is shown by Figure 4 on the following page. 14

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24 Planning for Conventionally Constructed Multi-Family Housing Units Beginning in 1995, and again in 1997, the direction of the Town s future development began to change to an acceptance of multi-family land use. In the aftermath of the destruction of southeast Florida by Hurricane Andrew on August 24, 1992, the Town Council reconsidered its policy in regard to the issue of redevelopment. Discussion on the adoption of a Town redevelopment plan began in 1995 when the Town applied for and received a grant from the Florida Department of Community Affairs as part of the Coastal Management Program underwritten by the National Oceanic and Atmospheric Administration to conduct a study for an updated Emergency Evacuation Plan. Pursuant to the grant program requirements, on December 28, 1995, the Town adopted Resolution 95-5 which created the Coastal Hazards Project Committee to study the effects hurricane related disasters could inflict upon the Town s residents and their homes, and to make recommendations to the Planning and Zoning Board, acting as the Local Planning Agency, and to the Town Council, for a plan that would provide appropriate solutions. Over a series of meetings during 1996, the members of the Coastal Hazards Project Committee created an up-dated Hurricane Emergency Policy for the Town that was later adopted by the Town Council. The Policy addressed hurricane preparedness and evacuation procedures and also contained a study of land planning criteria and land development techniques which would be available to rebuild the Town with residential dwelling types that would include both mobile homes and conventionally constructed multi-family homes after substantial hurricane damage. The Town Council proposed at that time to enact a specific post-disaster recovery plan as an amendment to the Town s 1989 Comprehensive Plan. This Post-Disaster Recovery Plan was approved by the Town Council in March, The Plan proposed two alternative types of development. Plan A called for continuing the Town as a mobile home community but designed with larger home sites and with more spacing between the mobile homes. This Plan retained the current community preference for mobile home residences, but resulted in reducing the total number of lots from 550 to 475. If the average number of occupants per unit remained unchanged, this would result in a reduction in the Town s population. 16

25 Plan B proposed new low, medium, and high density residential zoning districts and a mixed use zone that, combined, would permit up to approximately 960 housing units. The type of residential units allowed would continue to include mobile homes and be expanded to include all other conventional types of single-family and multi-family housing units. This Post Disaster Development Plan was premised upon the threshold occurrence of the substantial destruction of the Town s existing development as a mobile home community, due to a hurricane or other natural disaster. The Plan would be implemented by amending the Comprehensive Plan and adopting the enabling amendments to the Town s Land Development Regulations to create the application and approval procedures, the land development criteria, the several new zoning districts, and rezoning the necessary land areas for these changes. At the time of the Town s active consideration of the Disaster Recovery Plan, alternate Plan B received the greater degree of support. If implemented, it would have resulted in an increase in the Town s peak population to approximately 1,815. The Town began the planning and legislative process to accomplish these changes by instituting communication with Department of Community Affairs in 1997 and However, due to certain objections raised by residents opposed to any changes in the status quo nature and makeup of the Town as a mobile home community, the Comprehensive Plan Amendment and the legislative procedures to effectuate either of the two proposed plans were not completed by the Town. The community interest in land development types other than that limited exclusively to mobile homes arose again in March, 2006 when the Board of Directors of Briny Breezes, Inc. sought competitive offers for a plan to redevelop its entire real estate holdings. In December, 2006, the Corporation entered into a Sale and Merger Agreement with a developer to redevelop the Town. The Agreement called for a planned redevelopment of the Town to other than mobile home type living units, and was approved by 82% of the Corporation s stockholders. 17

26 As a result of this agreement, in April, 2007, the Town Council adopted a preliminary ordinance amending the Town s Comprehensive Plan to coordinate with the proposed redevelopment. The Council also adopted an EAR that mirrored the Comprehensive Plan Amendment. The Plan Amendment eliminated mobile homes entirely and replaced them with a resort hotel, condominiums, limited commercial uses and a greatly expanded marina facility. The proposal anticipated that by the completion date of 2020, there would be a population increase, but did not provide a specific build-out population figure. In the process of reviewing the Plan Amendment, some of the reviewing agencies estimated the proposal would result in 3,500 to 4,000 permanent residents. In July, 2007, the proposed development of the Corporation s property was terminated by mutual agreement before the transaction could be completed. Further progress on the Town s ordinance and related procedures to amend its Comprehensive Plan were halted. The Corporation s intentions to redevelop it property have continued. In July, 2008, the Corporation requested the P&Z/LPA to consider approval of multi-family housing within the Town and expansion of the commercial uses to better serve the needs of the area residents. This request establishes a basis for the P&Z/LPA to recommend such future development to the Town Council. The P&Z/LPA began it work on the EAR with the knowledge of these past events and with an understanding that the Town was poised for some degree of future growth and redevelopment. In response to these trends, the P&Z/LPA concentrated on the review of the Town s Future Land Use Element. In a departure from the rigidity of the 1989 Plan, the P&Z/LPA concluded that the Town s Future Land Use Element should provide for a broad mix of all types of residential living units, allowing single and multi-story construction, single family and multi-family occupancy, and the use of conventional building construction methods. This accommodation would be in addition to the continued acceptance of all of the present allowable types of mobile homes, manufactured homes, modular homes and recreational vehicles. The Town s Zoning Code needs to be amended to allow these new housing types in the present Mobile Home Zoning Districts. The P&Z/LPA concluded that these changes to the allowable types of residential living units would be followed by the construction of new units, leading to an increase in the Town s population. The proposed Future Land Use Map of the Town is shown by Figure 5 on the following page. 18

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28 The P&Z/LPA also recommended revisions to the Town s zoning code that would up-grade the allowable types of retail commercial land use to better serve the needs of the Town residents and extended to include those persons living in the nearby residential areas. Consideration was also given to the possibility of combining residential and commercial uses into innovative mixed zoning categories. Any such new zoning districts would have to include provision for the continuation of the present recreational and service amenities which are presently located in the proposed development area. Sites for Future Development Vacant Land The only buildable tract in the Town s Vacant Land Inventory is vacated District V, which consists of approximately 0.6 acres. If redeveloped a single parcel, the present zoning code would allow it to be used for up to eight mobile home lots. The remaining vacant land within the Town is made up of small pieces having a size, configuration, or location that is not suitable for development. On the Town s west boundary, these parcels are located along the shoreline of the Intracoastal Waterway and on the land-side of the two northerly canals that feed into the Waterway. On the Town s eastern boundary, these areas consist of the Corporation s privately owned ocean front beach. Collectively, these several areas constitute natural resource land and are presently set aside by Briny Breezes, Inc., for passive recreational uses by the members of the cooperative. The P&Z/LPA considers this to be the highest and best use for these land areas. Sites for Future Development Annexation The Town has experienced a recent interest in annexation issues in general and there is some possibility that the total land area of the Town could increase in the future through the annexation process. In March, 2010, the P&Z/LPA adopted Resolution No. P&Z to recommend that the Town Council should participate in a pending governmental process with Palm Beach County and the City of Boynton Beach for the creation an Interlocal Service Boundary Agreement affecting the unincorporated area of Palm Beach County abutting the Town s southern boundary. 20

29 Possible Town Growth by Annexation The P&Z/LPA anticipates some degree of public support for an increase in the land area of the Town through a policy of future annexations. One possibility relates to the two enclaves located within the Town s boundaries. Annexation of these properties would increase the Town s size but it would not have a direct effect on the Town s resident population. Both enclaves are presently developed for commercial uses. The south parcel is developed as a motor vehicle service station, and the north parcel has a bank building and a real estate sales office. The other possibility involves annexation of the county pockets which abut the Town s south boundary along Briny Breezes Boulevard, east of State Road A1A. Acquisition of this territory would have a direct effect on both the Town s size and its population. Much of this land has been divided into small individual home-sites and all the parcels are privately owned. The larger extent of this land has been developed. It contains a mixture of single-family residences, seasonal residential properties, and vacant lots, together with commercial retail uses fronting on State Road A1A. The roads servicing this area are, for the most part, paved and provide good access and circulation. Potable water supply and some sanitary sewer service are provided to these residents and businesses by the City of Boynton Beach. Annexation would immediately provide other municipal services to this area by the Town of Briny Breezes, but no such services are provided now. Since the possibility of the Town s annexation of the county pockets is presently only speculation, the P&Z/LPA has deferred further analysis of the effect this might have on increasing the size of the Town s population. Should the Town decide to pursue a policy to annex the enclaves or the abutting county pockets to the south, the Town would be able to meet its financial responsibilities to provide municipal services to the residents and businesses in these areas. 21

30 New Site Locations by Redevelopment of Obsolete Areas Other than obtaining new land areas through the process of annexation, the future development of the Town will have to occur within the Town s present boundaries. This means re-using properties having minimal development, such as the shuffle board courts, the extra parking spaces, the north and south storage lots and the maintenance area. Some of these areas are readily available as open space, such as vacated District V, mentioned above. Others are occupied by buildings and structures that have become old and outdated, which would have to be razed to make way for the new construction. For example, there are several potential building sites for new construction which are presently occupied by old Quonset-Hut type structures which no longer are the best and highest use for the land they occupy. District V in particular has much greater potential for the future of the Town if it were added to the land made available by clearing out obsolete buildings and structures to form a part of a new development area referred to as Section 6. The area under consideration for this redevelopment consists of a the north-south strip of land fronting on State Road A1A and extending one block westward to Banyan Boulevard, and bounded by the Town s north and south boundaries. For identification purposes in the planning process, this redevelopment area is referred to as Section 6 of the Town of Briny Breezes, and is shown as Figure 6 on the following page. 22

31 Figure 6. Potential Redevelopment Area Designated as Section 6, Showing Present Land Uses fineacca.1.1 NORTH 1 o: ( #. i; till IIIIIIIIL ;to =00 00 on co.0 ok goo on 00 0 is Imo orgi Lao ohm 0 n onigne V. 0 Si 1110 Ow gat# VI 0 OE t" ES doll* 1111 a a it lie st, sustgacinc waft fai S3132 a a jam MO NM a 155Si WM a WES r =RI tan fl a Et agog lallet ens* 04 UM asto *Ha onet a snag ma SIM ant teat 'Salta tan =t8m 8$61 17A1A North EXISTING LAND USE.\ ` \\ \,` Residential Mobile Homes) Commercial alat. 414 Recreational pwri Public and Semi-Public Parking and Landscape Belt Parcels Monti the city) Section 6 Potential Redevelopme nt (- Area Is Shown Between Arrows 4t.44).,4* th1(antz4 LOCum 23

32 The buildings and structures located on this strip of land are privately owned by Briny Breezes, Inc., and are utilized to support the operation of the mobile home park as it now exists. If it is to be redeveloped, the plan will be to put the property to better use. Located within this area are many of the major recreational facilities the Corporation provides for the Town residents. This includes the arts and crafts building, the community center, the swimming pool, the auditorium, the hobby shop, the billiards room, and the woodworking club. It also includes commercial uses for a beauty shop, a drug store, the Town Hall, the Corporation s business office, storage sheds, and storage yards. All of these uses are in conformity with the Existing Land Use Map and the current zoning classifications for this property. It is of paramount importance that any redevelopment in this area must insure the continuation of these recreational facilities and commercial use, either by incorporation into the new development plan or by relocation to an appropriate alternate site. If this potential re-development area were to be cleared of its present buildings and structures, it would add approximately 2.75 acres to the Town s vacant land inventory. Based on the present maximum allowable density of 26 units per acre under the Town s present Land Development Code, this area could theoretically provide up to 71 additional housing units. When added to the Town s present 488 housing units, this would give the Town a total of 559 housing units. The willingness and cooperation of Briny Breezes Inc. and of the public generally is expected to support this re-development transformation. Such support in principal has already been demonstrated, and is expected to continue. Due to the present depressed real estate market for new construction, and to allow the time required for the adoption of an Amended Comprehensive Plan, revised Land Development Regulations, and amendments to the zoning code, the P&Z/LPA considers this new construction will not be completed until the end of the 5-year planning period in Based on the above assumptions, Table 4 on the next page shows a computation for the Town s projected population by 2015 at end of the 5-year planning period. 24

33 Table 4 Projected Population by 2015 at End of 5 Year Planning Period 559 Total Housing Units x 49.8% = 278 units occupied by permanent residents 559 Total Housing Units x 49.1% = 275 units occupied by additional seasonal residents 559 Total Housing Units x 1.1% = 6 units that are vacant and unoccupied 278 Housing Units occupied by permanent residents having an average household size of 1.72 persons per unit = 478 permanent residents 275 Housing Units occupied by seasonal residents having an average household size of 1.72 persons per unit = 478 as the low average for seasonal residents 275 Housing Units occupied by seasonal residents having an average household size of 2.50 persons per unit = 688 as the high average for seasonal residents Low Estimate for Peak Seasonal Population: = 951 High Estimate for Peak Seasonal Population: = 1,166 Average Estimate for Peak Seasonal Population for planning purposes: 1,058 The proposed redevelopment area has two out-parcels or enclaves which are surrounded by the Town s boundaries but are located in the unincorporated area of Palm Beach County and subject to the County s zoning and land use controls. There are specific procedures under the state statutes governing the annexation of such areas into the municipalities that they abut. As was discussed above, there is presently public support for investigating the possibility of annexation generally, including the annexation of these enclaves. It would be important to provide compatibility between the existing development of the enclaves with that proposed for the redevelopment of the Town. The two enclaves within the Town s boundaries are shown on Figure 7 on the following page. 25

34 Figure 7. Two Enclaves within the Town Boundaries Briny Breezes municipal boundary Enclaves Both enclaves front on the west side of State Road Al A. The i south parcel is developed as a motor vehicle service station. It has a width of 72 feet and extends for a length of 240 feet north from Cordova Avenue. The Town's jurisdiction then resumes for 271 feet further north, where it reaches the north parcel. It has a width of 62 feet and a length of 244 feet, and is developed with a bank building and a real estate sales office. The Town's jurisdiction then resumes for 158 feet further north to the Town's boundary line. The P&Z/LPA considers that the proposed redevelopment of Town for the mixed uses of residential, commercial, and recreational buildings can be designed and constructed so as to be compatible with the existing development of the enclaves. 26

35 Annexation would provide immediate municipal services to both enclaves by the Town of Briny Breezes, but no such services are provided at present. No negotiations have begun between the Town and the owners of either enclave parcel regarding the issue of annexation. The P&Z/LPA foresees that the Town s redevelopment of this strip of land as a multi-story, multi-use corridor along State Road A1A will breathe new life into the area where these outdated buildings are now located. As shown by Table 3, this will allow for growth in the Town s present number of 488 housing units to approximately 559 units. The Town of Briny Breezes will work with the Briny Breezes Corporation to ensure that there will be no long term displacement of residents throughout the transition process. The leasing and/or sale of these new mixed-use structures will provide a new income stream to benefit the Corporation and its shareholders. The P&Z/LPA foresees further beneficial results once such a program is instituted. Successful coordination between the Corporation and the individual mobile home owners could become a continuing process of new development. When the first such obsolete area is cleared and replaced with multi-family housing units, a group of individual mobile home owners in a given section of the mobile home park could be accommodated by moving into the newly constructed multi-family building. Their former mobile home sites, now vacated, could be consolidated into another new multi-family building site to repeat the construction and relocation process. The exact areas selected for the transition from the present mobile homes to the new housing types, and the timing for such changes, will have to be closely controlled to avoid haphazard results from any inappropriate mix in housing types. If this initial effort to re-develop the Town proves successful, the P&Z/LPA expects the Corporation could repeat the process at least five more times during the next five years. This would add 355 housing units to the 559 units projected by Table 3, for a total of 914. Table 5 on the following page shows a computation for the Town s projected population of 1,731 persons, for planning purposes, for the year 2020, based on these assumptions. 27

36 Table 5. Projected Population by 2020 at End of 10 Year Planning Period 914 Total Housing Units x 49.8% = 455 units occupied by permanent residents 914 Total Housing Units x 49.1% = 449 units occupied by additional seasonal residents 914 Total Housing Units x 1.1% = 10 units that are vacant and unoccupied 455 Housing Units occupied by permanent residents having an average household size of 1.72 persons per unit = 783 permanent residents 449 Housing Units occupied by seasonal residents having an average household size of 1.72 persons per unit = 772 as the low average for seasonal residents 449 Housing Units occupied by seasonal residents having an average household size of 2.50 persons per unit = 1,123 as the high average for seasonal residents Low Estimate for Peak Seasonal Population: = 1,555 High Estimate for Peak Seasonal Population: ,123 = 1,906 Average Estimate for Peak Seasonal Population for planning purposes: 1,731 Another option the P&Z/LPA proposes for the Town s future development would be to allow owners to replace their existing mobile homes with residential structures that would meet an upgraded building code making them hurricane resistant. This would allow innovative one or two-story manufactured homes, or the so called Katrina Cottages, which could be designed and engineered to fit the same site occupied by the present mobile homes. Since this would be an even exchange of mobile homes, it would not change the Town s total number of housing units. Replacing the present mobile homes with more storm-worthy construction, however, could attract younger persons and families with children to come to live in the Town. If the converted units were occupied by more persons, it would raise the average occupancy figure per household as well as increase the number of the Town s permanent residents. Since there is no way to predict what may result from the replacement of such units, the P&Z/LPA has not used this option as a basis to predict a change in the number of the Town s permanent residents. To implement the Town s redevelopment as recommended in the EAR, the P&Z/LPA proposes to the Town Council that that the Comprehensive Plan be amended to include a new category of mixed uses for residential, commercial, and recreational buildings and structures. The 28

37 P&Z/LPA also proposes that the Town s Land Development Regulations be amended to include the new zoning districts, to state the land development criteria for each such type of development, to create the application and approval procedures for obtaining the development approvals necessary for each to change the future land use map to include these future uses, to adopt the several new zoning district ordinances, and to rezone the necessary land areas involved for these changes. Other Land Utilization Characteristics Up to the present, the existing land uses in Briny Breezes are essentially unchanged since the adoption of the 1989 Comprehensive Plan. They are shown on Figure 4, the Existing Land Use Map, on page 14. A small amount of commercial use and several semi-public buildings owned by Briny Breezes, Inc., are located along the frontage of State Road AlA. Shared parking and landscaped areas line a number of the residential streets. A major portion of the town lies within the Coastal Hazard Zone, but since the adoption of the 1989 Comprehensive Plan, there has been no hindrance of the development rights of Briny Breezes Inc., or of the private mobile home unit owners residing within the area. Natural Resources The Town s significant natural resources are the Atlantic Ocean, including its beach, dunes and accompanying vegetation, and the Intracoastal Waterway and its shoreline. Historic Resources The Town s investigation has determined that there are no Historic Resources located within the Town. Recreational Facilities All recreation facilities and programs are provided and operated by Briny Breezes, Inc., except for the library which is supplied by the Town. The facilities provided were designed for the community, and are shown on Figure 8, below. 29

38 Figure 8. Recreation Facilities r646 Existing Recreational Facilities In Municipal Boundary Recreation Facilities Hobby &Billcard building petota.atiditoreum sil4twenaririt,"-pali Figure 8 shows four areas which provide for the recreational needs of the community. The first is the oceanfront, the second is located along the east side of State Road AlA, the third is on the west side of AIA, and the fourth lies along the Intracoastal Waterway. The ocean-front facility contains a club house with banquet and meeting facilities, a patio with chairs and benches, and a private beach with cabanas and walkways. The facilities along the east side of State Road AIA include the Corporation's butterfly garden, the shuffle board courts, a club room, a card players' room, and the Town's library. On the west side of State Road Al A, and included in the area proposed for redevelopment, is the community center building, the fine arts building, a large swimming pool, a cabana, an auditorium building, hobby shops for arts and crafts, and one for wood-working. As previously stated, any redevelopment in this strip area fronting on State Road Al A must insure the continuation of these recreational facilities, either by incorporation into the 30

39 new development plan or by relocation to an appropriate alternate site. The fourth recreational area is located further to the west and fronts on the Intracoastal Waterway. It consists of two large and three small open parkways for picnicking and viewing the marine activity on the waterway, and a yacht basin, which has an operating marina. Public Facilities and Services Since the adoption of the 1989 Comprehensive Plan, the Town has acquired ownership of the water and sewer utility distribution system serving the residents. Since acquisition, the Town has made extensive improvements to the water lines, installed fire hydrants, and provided upgrades to the sanitary sewer lines and lift stations. The Town has contractual arrangements with the City of Boynton Beach to provide the potable water supply. The Town is one of the original participants in the establishment of the regional sanitary sewage disposal facility which is operated under the joint management of the Cities of Boynton Beach and Delray Beach. The Town also has contractual arrangements with the City of Boynton Beach for Police, Fire and Emergency Medical Technicians Services. The Corporation, Briny Breezes, Inc., is responsible for the storm drainage facilities within the Mobile Home Park and has the primary responsibility for the pick-up and disposal of solid waste. Most of the streets within the Town are privately maintained by the Corporation. The Town is responsible for maintenance of the two local public streets, Briny Breezes Boulevard and Old Ocean Boulevard. The State and County are responsible for State Road A1A. There are no well-fields within or near the Town boundaries. No vacant land in the Town is affected by development orders. The present levels of service (LOS) for all public facilities and roads within the Town are sufficient. They are more than adequate to meet the needs for Town s present increased population during the winter season. During the ten-year planning period that the Town expects its seasonal population to increase to 1,731 people, the Town will be able to increase its LOS to continue to provide adequate levels of service for all public facilities required. 31

40 Flood Prone Areas The Flood Insurance Rate Map or Flood Hazard Boundary Map of the Town of Briny Breezes is shown on Table 10 in the discussion of the Conservation Element, and appears at page 75. The Flood Zone Map shows that much of the Town is in the 100 year flood plain, and gives the designations that apply to the other flood zones that are not within the 100-year hazard areas. Although storm drainage is the Corporation s responsibility, the Town s earlier attempt for a redevelopment strategy for multi-family, permanent construction was a step to improve the drainage problems. The proposed development plan will now achieve this goal. The Town s Development Regulations require the sound anchoring of mobile homes in conformance with State and Federal standards. These regulations together with the Town s adherence to the emergency evacuation plan outlined in the Coastal Management Element will continue to be the Town s successful flood damage prevention strategies. Recommendations 1. The Town s Future Land Use Element and Development Regulations should be revised to provide for all types of single and multi-story construction and single family and multifamily dwelling units of conventional construction methods, in addition to allowing the present types of mobile home structures. 2. The Town s Future Land Use Element and Development Regulations should be revised to provide for new zoning districts that combine residential, commercial and recreational uses into innovative mixed zoning categories to better serve the community needs. 3. The Town s Future Land Use Element and Development Regulations should be revised to allow the types and kinds of permitted retail commercial uses to better serve the needs of the community and the neighboring residential areas. 4. The Town s Future Land Use Element and Development Regulations should be revised to allow mobile home owners to replace their existing mobile homes with residential structures that meet an upgraded hurricane resistant building code standard. 5. The Town s Future Land Use Element and Development Regulations should be revised to provide new zoning districts needed for redevelopment, to state the land development criteria for each such type of development within the zoning districts, and to provide the application procedures for obtaining development approval. 6. The Town s Future Land Use Map should be revised to provide for the projected future 32

41 development of the Town to take place within the present internal Town boundaries to replace any outdated or obsolete buildings and structures presently located there. 7. The Town s Future Land Use Map should be revised to provide for the projected future development of a multi-story, multi-use commercial/residential corridor along state Road A1A with provision for recreational facilities to replace the outdated or obsolete buildings and structures presently located there. 3. REVIEW OF TRANSPORTATION ELEMENT Introduction Because the Town s estimated seasonal population ranges between 1,100 to 1,200 persons, the roadways serving the Town carry only limited traffic during the summer months and handle higher traffic volumes during the peak season. The completion in the early 1970 s of the I-95 interchange at Woolbright Road in the City of Boynton Beach has provided convenient access to the Town from the west. No further significant changes in the transportation routes affecting the Town of Briny Breezes have occurred since the current comprehensive plan was adopted in Jurisdiction of Existing Roadway System The public road system serving the Town consists of State Road A1A, a minor arterial roadway maintained by the Florida Department of Transportation (FDOT), and two local roads, Briny Breezes Boulevard and Old Ocean Boulevard, which are maintained by the Town of Briny Breezes. On these three roadways, the State, County and Town law enforcement officers have legal authority to enforce the traffic control laws by direct authorization of state law. The remaining streets are privately owned and maintained by Briny Breezes, Inc. as part of its operation of its mobile home park. For these private streets, the provisions of the state traffic code and Town traffic control ordinances are enforceable pursuant to an agreement between the Town and the Corporation. 33

42 Municipal Traffic Control Agreement During the reviewing process for the Transportation Element, the P&Z/LPA discussed improving traffic safety within the Town. Ultimately the discussions led to the Town and the Corporation entering into a written agreement under Section of the Florida Statutes for municipal traffic control over the private streets within the Town. The statute allows such agreements to extend the jurisdiction of the local police force to enforce the state traffic code on the private streets of residential developments that are located within a town s municipal limits. Town traffic control ordinances adopted to meet particular traffic control needs are also enforceable, such as one-way street travel, stop signs, speed limits, and parking regulations. In April, 2009, a formal Municipal Traffic Control Agreement was entered into between the Town and the Briny Breezes Corporation for such purposes. As this agreement is implemented by the further cooperation between the Town and the Corporation, improvements to both motor vehicle and pedestrian safety are expected in the future. Mapped Data The data used for the inventory of the existing system include current roadway functional classifications and the most recent available traffic volume count of the average daily traffic. The existing roadway functional types, the number of lanes, the locations of boat docking facilities, and other water-related facilities have been mapped. Facilities such as limited access roadways, airports or seaports, are not present in the Town and have not been addressed. Street Pattern Figure 9 on the following page shows the existing streets, roads and highways serving the Town of Briny Breezes. 34

43 Figure 9. Road Network for the Town of Briny Breezes Existing Road Network Arterial, State Road, 2-lane Local, Town Road Municipal Boundary Two of the public roadways extend in a north-south direction, which corresponds to the Town being located on a long, narrow barrier island that lies parallel to the Atlantic Ocean State Road Al A, also known as North Ocean Boulevard, is the Town's only arterial roadway. It is a twolane, undivided highway that traverses the entire length of the community. It links the Town of Briny Breezes to unincorporated parts of Palm Beach County and the Town of Ocean Ridge to the north, and to the City of Boynton Beach, unincorporated parts of Palm Beach County and the Town of Gulf Stream to the south. Old Ocean Boulevard is also a two-lane, undivided road, located to the east of State Road A I A and runs parallel to it, along the ocean front. The portion of Old Ocean Boulevard that lies 35

44 within the Town is shown by on Figure 9 by a dashed line. Like State Road A1A, it also traverses the entire length of the Town, but it is not a through route and it carries only a low volume of traffic. It primarily serves the internal traffic circulation for the Town and also carries limited traffic through the Town to the Town of Ocean Ridge on the north and to the unincorporated parts of Palm Beach County on the south. It also functions with Surf Road, which is located outside the Town in the unincorporated area south of the Town limits, to give those county residents dual access to State Road A1A. At the Town s south east corner, Old Ocean Boulevard intersects with Briny Breezes Boulevard, which is an undivided, two-lane road that runs from east to west along the Town s south boundary line, and ends at its intersection with State Road A1A Approximately one-half mile north of the Briny Breezes Town limits, State Road A1A intersects with the east segment of Woolbright Road, which has a draw-bridge over the Intracoastal Waterway that connects with the mainland portion of the City of Boynton Beach. The Woolbright Road interchange with Interstate Highway I-95 lies approximately one mile further to the west. I-95 is a divided multi-lane major arterial road, running north and south as part of the Federal Interstate Highway system serving the State of Florida and the northern areas of the United States. Traffic Volume The Town does not have a substantial amount of through-vehicle trips because of the low vehicle speeds and limited commercial opportunities caused by the frequent curves of State Road AlA. Average daily trips on State Road A1A from George Bush Boulevard to Woolbright Road passing through the Town of Briny Breezes for the period 2003 to 2007 are shown in Table 6 on the following page. 36

45 Table 6. Daily Traffic Volume Daily Traffic Volume on SR A1A from George Bush Blvd to Woolbright Road on SR A1A, Passing through the Town of Briny Breezes Year Volume 11,774 10,175 10,718 10,847 8,665 Source: Palm Beach County Traffic Division, Historic Traffic Growth Table, Current Year 2008 The 2008 daily traffic volume for this roadway segment taken on March 10, 2008 was 7,846 vehicles, a reduction on traffic volume of 9.88 %. The a.m. peak hour traffic on that date for travel in both directions was 512 vehicles. The p.m. peak hour traffic on that date for travel in both directions was 651 vehicles. This traffic volume data indicates that State Road A1A is presently operating at an acceptable level of service at the peak period of the winter season when the Town s population estimated at 923 persons, and perhaps rising to a peak of 1,100. This roadway will continue to operate at an acceptable level of service when the Town s winter population reaches the peak level of 1,731 persons in 2020 at the end of the ten-year planning period. No traffic counts are reported for Briny Breezes Boulevard and Old Ocean Boulevard because these are local roads. Observation attests that these roadways are operating at acceptable levels of service. Accident Data and Traffic Safety Concerns There is no accident report information supplied for the period 2003 to 2008, although Town residents have complained to the P&Z/LPA that there have been many narrowly averted accidents due to vehicles traveling on State Road A1A failing to stop upon for the red light signal at the Cordova Avenue intersection to allow the waiting traffic to cross. Under the Town s direction, this 37

46 hazardous situation was recently documented by occurrence reports prepared by several of the local residents involved, which were delivered to the traffic safety section of the Florida Department of Transportation for investigation and a request for remedial action. This matter is in process of review by the Department s traffic safety investigators. In addition to traveling in their motor vehicles, Town residents frequently traverse the several intersections of the Town streets with State Road A1A, by golf carts, bicycles, and on foot. Midblock crossing of State Road A1A, especially by this non-automobile traffic, poses an additional safety hazard in this area. The P&Z/LPA have expressed its concern over these safety issues and find that there is a need for the Town to adopt appropriate traffic regulations to address the situation. Level of Service The level of service (LOS) of a roadway is defined as the ability of vehicles to pass over a given section of roadway during a specified time period while maintaining a given operating condition. In order to establish a peak hour level of service standard, the existing level of service for roadways was calculated using the ratio of peak hourly volume to average daily volume. The standardized descriptions of service levels used in transportation planning are shown in Table 7 on the follow page. 38

47 Table 7. Standards for Levels of Service 1. LOS A: Highest LOS which describes primarily free-flow traffic operations at average travel speeds. Vehicles are completely unimpeded in their ability to maneuver within the traffic stream. Stopped delay at intersections is minimal. 2. LOS B: Represents reasonably unimpeded traffic flow operations at average travel speeds. The ability to maneuver within the traffic stream is only slightly restricted and stopped delays are not bothersome. Drivers are not generally subjected to appreciable tensions. 3. LOS C: Represents stable traffic flow operations. However, ability to maneuver and change lanes may be more restricted than in LOS B, and longer queues and/or adverse signal coordination may contribute to lower average travel speeds. Motorists will experience an appreciable tension while driving. 4. LOS D: Borders on a range in which small increases in traffic flow may cause substantial increases in approach delay and, hence, decreases in speed. This may be due to adverse signal progression, inappropriate signal timing, high volumes, or some combinations of these. 5. LOS E: This represents traffic flow characterized by significant delays and lower operating speeds. Such operations are caused by some combination or adverse progression, high signal density, extensive queuing at critical intersections, and inappropriate signal timing. 6. LOS F: This represents traffic flow characterized at extremely low speeds. Intersection congestion is likely at critical signalized locations, with high approach delays resulting. Adverse signal progression is frequently a contributor to this condition. Source: Florida Department of Transportation & Palm Beach County Traffic Department Existing Transportation Needs Field observations indicate that no transportation deficiencies presently exist in the Town of Briny Breezes. All public roadways are currently operating at acceptable levels of service. Although the traffic volume on State Road AlA is projected to increase when the peak winter population of the Town reaches 1,731 persons at the end of the ten-year planning period, the extent of the increased traffic resulting therefrom will not reduce the LOS to a level that would be below the D standard, and the widening of this roadway will not be required. 39

48 Future Needs No significant system needs are anticipated during the planning horizon. No through traffic routes other than AlA exist, so the needs will be primarily for street maintenance and shoulder repair. These repairs are expected to be adequately funded as outlined in the Capital Improvement Element. In 2007, the State added three-foot shoulders to each side of State Road A1A. Neither the State nor Palm Beach County have any further plans for widening or otherwise improving State Road A1A within Briny Breezes. The Town of Briny Breezes has no plans to improve or widen Briny Breezes Boulevard and Old Ocean Boulevard. There are no limited access roadways under consideration for this area of Palm Beach County that affect the Town of Briny Breezes. The Town of Briny Breezes has special concern regarding the preservation of State Road AlA as a two-lane roadway with the above mentioned improvements. Its present width for vehicular travel is in keeping with the character of the community. Coordinating the Transportation system with the Town s Future Land Use Element, other local governments, and regional plans will continue to be a Town priority. State Road A1A is the only roadway within the Town for which levels of service have been applied. This information is shown on Table 8, on the following page. 40

49 Table 8. Level of Service for State Road A1A Existing and Future Level of Service for State Road A1A in the Town of Briny Breezes (Future LOS Based on Estimated Peak Seasonal Population in 2020 of 1,731 persons) Existing Level Hourly Peak Hour V/C Ratio LOS Of Service, Capacity , B Future Level 1,200 Of Service, 2020 The following V/C Rations were utilized for determining Existing and Future Level of Services. Level of Service Volume/Capacity or V/C Ratio A - Less than or Equal to 0.30 B - Less than or Equal to 0.50 C - Less than or Equal to 0.75 D - Less than or Equal to 0.90 E - Less than or Equal to 1.00 Source: Florida Department of Transportation & Palm Beach County Traffic Department Recommendations 1. The Town should continue its present road maintenance program for Briny Breezes Boulevard and Old Ocean Boulevard which are the local public roads serving the Town. 2. The Town should continue to cooperate with the Florida Department of Transportation (FDOT) for the maintenance of State Road A1A, the minor arterial roadway which it maintains, which will always remain as the main thoroughfare for the Town. 3. The Town should continue to cooperate with Briny Breezes, Inc., for the Corporation s maintenance program for the local street system. 4. The Town and Briny Breezes, Inc., should implement the Agreement for Municipal Traffic Control to improve the vehicular and pedestrian safety for travel over the local street system. 5. The Town should adopt appropriate traffic regulations to improve motor vehicle, golf cart, bicycle, and pedestrian safety along State Road A1A. 41

50 4. REVIEW OF HOUSING ELEMENT Introduction The 1989 Comprehensive Plan for Briny Breezes described the community as being unique in that the housing stock is composed entirely of mobile homes. That categorization has remained the same in the ensuing 20 years, as the Town has continued to be an all mobile home community. The ownership arrangement further distinguishes the Town of Briny Breezes from its neighbors because Briny Breezes, Inc., a Florida corporation, is the sole owner of the entire land area comprising the Town limits of Briny Breezes. Every resident becomes a member and shareholder in the Corporation when he/she purchases a mobile home housing unit. The Corporation operates the mobile home park as a residential mobile home cooperative under the provisions of The Florida Cooperative Act, Section 719, Florida Statutes. This business arrangement results in the efficient maintenance of the mobile home park facilities and encourages participation by the residents in housing matters on both the Corporation s and the municipal government s level. Existing Conditions Housing Types All housing units in Briny Breezes are single-family mobile homes. The original units were placed during the 1950s and 1960s on a variety of lot sizes. Most mobile homes have been replaced at least once since that time. According to the 2000 U.S. Census, the Town had a population of 411 persons and a total of 534 housing units, of which 266 were occupied and 268 were vacant. Of the 266 occupied units, 245, or 92.1 %, were classified as owner-occupied, and 21 units, or 7.9 %, were classified as renter-occupied units. Of the 268 vacant units, 266 were used by the owners for seasonal, recreational, or occasional occupancy, and only 2 units were classified as unoccupied and not being used to any extent. An excerpt from the 2000 Census shows the types of households, housing ownership, and housing rentals for the Town on Table 8, below. 42

51 Table Census Data, Town of Briny Breezes HOUSEHOLD BY TYPE Total households Family households (families) With own children under 18 years Married-couple family With own children under 18 years 1.1 Female householder, no husband t With own children under 18 years Nonfamily households 137 5t5 Householder living alone Householder 65 years and over Households with individuals under 18 years Households with individuals 65 years and over Average household size 1.55 (X) Average family size 2.06 (X) HOUSING OCCUPANCY Total housing units Occupied housing units Vacant housing units For seasonal, recreational, or occasional use Homeowner vacancy rate (percent) 1.2 (X) Rental vacancy rate (percent) 8.7 (X) HOUSING TENURE Occupied housing units Owner-occupied housing units Renter-occupied housing units Average household size of owneroccupied units (X) Average household size of renteroccupied units (X) The 2008 data prepared by the University of Florida stated the Town s population as 417. The Town defines its permanent residents as those persons living in the Town for more than six 43

52 months per year. Residents who live in Town for less than six months of the year are classified as seasonal residents. According to the private records of Briny Breezes, Inc., in 2008, the Town had 488 mobile homes, and a population that varied widely between the height of the winter season, when it ranges from a peak of approximately 1,100 persons, to the low period during July through September, when the population drops as low as 200 persons. Housing Conditions In 1989, the majority of the housing stock was ten to fifteen years old. Then the units were well maintained or replaced when necessary so there were no structurally substandard units. Traditionally, when applied to the housing units in the Town of Briny Breezes, the term substandard means that the unit is of an age or condition that necessitates its replacement. No units are overcrowded and all units contain adequate plumbing, heating and kitchen facilities. Since the 1989 Comprehensive Plan, a significant change has occurred in the attitude of the shareholder/unit owners regarding the Corporation s leaning toward the proposition of selling the community. The proposal to sell the Corporation s land holdings arose in 2006 and was supported early in 2007 by 82 percent of the stockholders. As a result of the expected sale, many unit owners lost interest in the routine maintenance and upkeep of their homes. During 2007 and early 2008, the replacement and renovation of the existing units slowed drastically. Only a handful of new units have been installed in Briny Breezes in the last several years. Reductions in construction activity would be expected to continue as long as the residents remain uncertain as to whether the Corporation will sell to a developer. More recently, requests for building permits have increased, which may indicate a change in the public s expectations for the Town s future which will have construction and repair activity returning to normal during the coming winter season. Under the Corporation rules, applications for the replacement of mobile homes and applications for building permits for repairs and renovation may only be requested during the winter months. Repairs may be made during the summer months, but only if permits were obtained during the winter season. The only permits granted during the summer months are for air conditioner replacements. 44

53 Housing Values In 1989, the average value of housing in Briny Breezes was below the County s average. Briny Breezes homes were then valued at $52,800 on an average, just 2.5 percent less than the average Palm Beach County home value of $55,300. Because the Town s housing type is limited to mobile homes, Briny Breezes then had no high value units. The price range ran from the highest valued unit, which listed at $65,000, to the lowest unit, at $32,500. The proposal to sell Briny in 2006 has resulted in one significant figure and this figure has caused alarm about future property values in Briny. The average price for property in Briny has skyrocketed during the last two years with mobile homes being sold at figures in excess of $250,000. Currently, there are seventeen properties listed for sale in the Town. The prices being asked for these units range from $209,000 to $435,000. This escalation in sale prices has caused considerable concern among long-term residents in the Town, who see the potential of greatly increased taxes because of these high increases in the property values around them. Housing Rentals In 1989, the few rental units had a mean rental rate of $332 per month, which was higher than the County mean monthly rental rate by almost $100. At the present time, accompanying the price increase in the proposals to sell, is the increase in the price of rental property in Briny Breezes. The combination of favorable weather and the proximity to the Atlantic Ocean continues to cause the rental prices in the Town to escalate, mirroring like conditions elsewhere in South Florida. In today s market, the current listings for rentals in Briny Breezes run from $1,100 to $2,400 per month. Mortgage-To-Income Ratios The majority of owner-occupied units in Briny Breezes are not mortgaged. Of those that are, most are financed at a cost that did not place an excessive burden on the participating household s income. Most households paid between 15 percent and 24 percent of their incomes for mortgages. Only six percent of owner-occupied households paid more than 35 percent of their incomes for mortgages. Most of the households were retirees with fixed incomes. 45

54 Rent-To-Income Ratios The rent-to-income ratio of households in Briny Breezes is deceiving in that most renter households are retirees on fixed incomes and, therefore, pay a great deal of their annual incomes for rent. There are very few renter households, so the Census figures identified in Table 4 on the following page are not indicative of the housing costs in the Town. Previous Redevelopment Strategies In 1989 it was thought that certain housing units would continue to reach an age where replacement became necessary. At that time, 10 units were replaced. The Town and Corporation attempted to reduce densities by leasing vacant lots to abutting homeowners. Under the plan, whenever a lot became vacant, the adjacent landowner on each side was encouraged to lease the lot. These homeowners would then split the leased lot between them and incorporate the halves into their existing holdings. The practice was not successful because the high cost of leasing the additional land was usually beyond the financial means of the abutting owners. Also, more often than not, when the departing resident left, he or she would sell the mobile home which was left in place for the new owner who would assume the land lease, thus continuing the status quo. Present Redevelopment Strategies The composition of the types of housing in the Town of Briny Breezes is expected to change in the coming years. This is demonstrated in the Future Land Use Element with the suggestion that multi-story condominiums and conventionally constructed single family homes are destined to occur in the Town. These changes in construction types would undoubtedly occur at a more rapid pace if future hurricanes should devastate the mobile homes located in this high-risk coastal area. The Corporation has entertained the possibility of development beyond the present mobile homes in the Town. From 1989 through 2007, Briny Breezes Inc. operated a parcel of land dedicated to true mobile homes by allowing travel trailers as rental units. Persons were allowed to park their towed travel trailers in the park area called District V, for a monthly rental fee. The Corporation first limited these travel trailer spaces to two-year periods, using the supposition that persons interested in residing in the area could find suitable housing within two-year period and then 46

55 move out of the District V location. However, in 2008 the Corporation ceased the travel trailer space rental business. Members of the Board of Directors have expressed a belief that that commonly owned property and other common property in Briny Breezes could be better used for commercial development. The possibility of multi-story buildings in commonly owned areas would include structures with parking and business space on ground floors, and locate the residential units within a limited number of upper stories. This multiple housing approach would have an impact on the Town s population, which is expected to rise to an estimated seasonal high of 1,731 residents by the end of the next ten-year planning period. Other Housing Data There are no subsidized units, group homes or historic houses in the Town of Briny Breezes. Up until now, housing construction has not been applicable in the Town. Currently, very few mobile homes are being replaced. There are few vacant units in the park and there are no abandoned units. Needs Analysis - Group Homes and Subsidized Housing Briny Breezes currently does not have subsidized housing facilities or group homes because it is a built-out mobile home park. The residents however are almost entirely senior citizens. The creation of Vacant Land for the new construction will likely occur by razing obsolete buildings and structures that are presently being used for storage and no-residential uses. Affordable Housing It should be noted that Briny Breezes was developed during the late 1950s and early 1960s and contains numerous replacement units. There are no significant historical housing resources in the community. Housing Needs The proposed introduction of multi-family housing into the Town will require the Corporation to undertake, or sponsor, the necessary construction activity to create these new residential 47

56 living units. Prior to that, however, the Town must first amend the Comprehensive Plan and adopt the enabling amendments to the Town s Land Development Regulations to create the application and approval procedures, the land development criteria, the new zoning districts, and rezone the areas where these changes will occur. The only housing need applicable to the existing mobile homes is to monitor the condition of the units to forestall any structural deterioration caused by age. The location and nature of the Town are not applicable to rural or farm worker housing. Private Sector Delivery Process All housing in Briny Breezes is privately owned and occupied by the residents through the medium of Briny Breezes Inc., as the owner and operator of the cooperative. There are no apparent private market constraints to buying mobile homes to move into the park, or to the resale of units in place, or to the construction of the proposed new multi-family residential units and/or commercial structures. The municipal role in the system will be to create and oversee the permitting process that allows the stated development activity. Briny Breezes, Inc., will continue to provide services as set forth in the homeowner agreements, as discussed in the Future Land Use Element. Identification of Conservation, Rehabilitation or Demolition Activities Thus far, all such rehabilitation and demolition activity has been accomplished in the form of mobile home replacements. As new models and units become available, older units have been replaced. Most mobile home units have been replaced two or three times so that the typical unit is less than ten years old. Elimination of Substandard Housing Since there is no substandard housing, this issue is not applicable to the Town. There is no housing rehabilitation or demolition. These efforts are achieved through mobile home replacement. There is no historic housing within the Town. 48

57 Recommendations 1. The Town should support the efforts of Briny Breezes, Inc. in revising its present restrictions which limit unit owners from replacing, repairing and renovating their existing units to the winter months only, and to allow such changes to be made on a year round basis. 2. The Town should allow Briny Breezes, Inc., to undertake, or sponsor, the necessary construction activity to create a new mix of residential living units composed of multistory condominiums and conventionally constructed single family homes within the Town. 3. The Town should undertake amending the Comprehensive Plan and adopting the enabling amendments to the Town s Land Development Regulations to create the application and approval procedures, the land development criteria, the several new zoning districts, and rezoning the necessary land areas involved for these changes. 5. REVIEW OF INFRASTRUCTURE ELEMENT Introduction The 1989 Comprehensive Plan contained an Infrastructure Element which described the Town s system of public works. The Plan also contained a Capital Improvements Element which analyzed the financial requirements necessary for the Town to continue to maintain its public facilities. In reviewing the 1989 Plan for the Evaluation and Appraisal Report, the separate treatment of these two subjects will continue except where necessary to explain the Town s financing of major public works improvement projects. In the preparation of the final report, however, they will be combined into a single Capital Improvements Element. The ten-year planning period for the Town s future infrastructure needs extends to the year The 1989 Infrastructure Element was based on the assumption that there would be no increase in the Town s population. Therefore, the plan predicted no improvements would be required in the Town s public facilities. In this respect, the 1989 Infrastructure Element failed its purpose. Although the population level remained relatively unchanged over the next five-years, a substantial change in the Town s infrastructure occurred in 1994 when the Town acquired ownership of and substantially upgraded the water and sewer utility system, a service which had previously been provided to the residents by Briny Breezes, Inc. 49

58 The infrastructure for wastewater, solid waste, drainage, potable water facilities, and natural groundwater aquifer recharge are presented in separate sub-elements. Each of the sub-elements (except groundwater) includes an inventory of the current system, geographic service areas, facility capacities, current demand, projected demand, and levels of service. Problems and needs are identified and policies to provide for future system requirements are outlined. The evaluation of facility needs has been based on the best available demographic and land use data and projections. Wastewater Facilities Sub-Element Collection System Public sanitary sewers serve the entire Town in compliance with Chapter 10D-6 Florida Administrative Code for the operation and maintenance of a sanitary sewer collection system. The main sewer lines lay buried underground near the centerlines of the several local roads and streets within the Town. The sewer mains and lift stations comprising the system are now owned and maintained by the Town. Ownership and maintenance of this collection system was transferred to from Briny Breezes, Inc., to the Town in At that time, the entire water and sewer system within the Town was in need of substantial expansion and repair. In preparation for the acquisition, the Town issued a Request for Proposals and contracted for the services of Hutcheon Engineers, a Division of Kimley-Horn and Associates, Inc., who were appointed and designated as the Town Engineer. The first assignment for the Town Engineer was to evaluate the physical condition of the entire water and sewer distribution system to determine the extent of its shortcomings. An engineering report was promptly issued outlining a sequence of improvement projects for both services. Based upon the Town Engineer s report, the Town went forward to validate a $2 Million Water Revenue Bond issue. One-half of the bonds were issued and sold and the funds were used to defray the costs of several public works improvement projects to upgrade the utility system. The remaining bonds were not issued, but held in reserve for any possible future financing needs of the utility system. The initial work consisted of replacing all of the collections lines west of State Road A1A, which entailed the displacement and repaving of the several local streets and roadways affected. Additional construction projects followed and the Town replaced its lift stations over a period of the 50

59 next four years. The replacement program for lift stations was completed in October The Town owns seven sewage lift stations (each containing two pumps, see Table 5). The local service connection lines to the individual mobile homes and corporation buildings, which input to the Town s sewer collection mains, are owned by Briny Breezes, Inc. Individual septic systems are not permitted. The main transmission line for the Town s wastewater system runs south along State Road A1A to connect with a major lift station to transmit the wastewater through a sub-aqueous line beneath the Intracoastal Waterway to the regional wastewater treatment plant on the mainland. Treatment System The original Briny Breezes sewage treatment facility was formally closed in October, 1984, when the Town entered into an Interlocal Agreement with the City of Boynton Beach providing for the interconnection of the Town s wastewater transmission line to the South Central Regional Wastewater Treatment and Disposal Plant. At that time the Town of Briny Breezes and the Village of Golf were part of the original participants who joined with the two major operational cities, Delray Beach and Boynton Beach, in the creation of a regional sewer system. The Town of Briny Breezes obtained a Step II/III Federal Grant from the United States Environmental Protection Agency for improvements to the Town s wastewater system. Federal grants were also obtained by the South Central Regional Wastewater Treatment and Disposal Board of Palm Beach County to create the regional facility, which is presently jointly operated by the cities of Boynton Beach and Delray Beach. In order to qualify for its Federal Grant, the Town adopted a uniform Sewer System Utilization and Performance Ordinance in compliance with the Federal Water Pollution Control Act of 1972, which currently remains in force and effect and regulates the usage and operation of the Town s sanitary sewer system. The South Central Regional Plant is capable of treating a maximum amount of 24 million gallons of wastewater per day and is currently treating million gallons per day. This figure escalates slightly during the peak residential season. The Town of Briny Breezes contributes far less than one percent of the daily volume of waste processed by the regional sewer system and will produce a slightly higher amount at the end of the ten-year period. This estimated increase will occur if projections of peak period population rise to 1,731 as projected in the Town s Future Land Use Element. The amount of sewage from Briny Breezes is based upon the Town s level of water usage 51

60 at a rate of 100 gallons per person per day. Records indicate that fluids returned to treatment facilities amount to 2/3rds of the amount of water purchased. Needs Assessment The South Central Regional Waste Treatment Authority anticipates having adequate capacity to handle the Town s wastewater needs well into the future, as indicated in Table 10. Boynton Beach City officials indicate that there are no plans in the immediate future for added sewage treatment plant construction. Table 10. Sewage Flow Projections for the Town Town Population By Year Daily Gallons Used Per Day Daily Waste Generated by Town (gpd) Daily Capacity of Waste Water Facilities (gpd) Percentage of Waste Contribution By Town ,200 15,000, , ,000 24,000, , ,000 24,000, Solid Waste Sub-Element Sources: South Central Regional Waste Treatment Authority, Collection System In Briny Breezes, the collection and disposal of residential and commercial solid waste operate efficiently and provide Town residents with an excellent level of service that matches or exceeds industry standards for smaller communities. The Town participates, as do the other municipal 52

61 governments in Palm Beach County, in a countywide solid waste disposal program through an Interlocal Agreement between the Town and the Palm Beach County Solid Waste Authority (SWA). This Interlocal Agreement allows the solid waste generated by the Town to be received for disposal at the authorized and approved landfill sites operated by the SWA. Through cooperative citizen participation, the solid waste material generated within the Town is deposited at a central collection site provided by Briny Breezes, Inc. The material is trucked by a private waste hauler to a transfer station on Lantana Road where refuse is consolidated for mass transport for disposal at the SWA s landfill in northern Palm Beach County, off Jog Road, just west of the Florida Turnpike. In addition to the disposable solid waste program, the SWA also has a program for the collection and processing of recyclable materials at the SWA Recyclable Facility located off 45 th Street, west of the Turnpike in West Palm Beach. The Town residents participate in a modified version of the SWA s curbside recycling program by bringing their recyclable materials to a central collection site provided by the Corporation. A private waste hauler hired by the Corporation picks up the recyclables and transports them to the SWA North County Resource Recovery Facility for processing. Briny Breezes, Inc., coordinates with the Town in participating in both programs by contracting for the pick-up and transportation services with the private solid waste hauler for both residential and commercial solid waste and the recyclable materials. Briny Breezes, Inc., also contracts for tree trimming and lawn maintenance service for the mobile home park area with a commercial landscaping company on a regular schedule and orders special collections as needed. The services include collecting and transporting the lawn clippings and tree debris for disposal at a designated dump site, as provided by the Town s Interlocal Agreement with the SWA. All countywide solid waste collections in Palm Beach County are eventually deposited at that the SWA s Jog Road landfill. This facility has adequate capacity to handle the entire volume of county solid waste for the next several years. Current projections by SWA officials indicate the Jog Road landfill will continue to provide disposal services for the entire county to the year Palm Beach County Commissioners have discussed the need for future landfill sites to continue disposal service thereafter, but thus far, nothing has been approved. 53

62 Projections made when the use of the Jog Road landfill first began indicated a capacity of 200,000 tons a day or 400,000,000 pounds. However, SWA records show that the average daily dumpage at the landfill is only 2,100 tons a day. The average annual dumpage has reached 761,000 tons. Needs Assessment SWA officials estimate residential waste generation at 4.5 pounds per capita per day countywide and a commercial rate at approximately 2.5 pounds per capita per day. Since there are no industrial land users to generate industrial or hazardous waste in the Town of Briny Breezes, the 2.5 pounds per capita estimate has no application. Based upon the Corporation s payments to its private contractors for waste haulage services, the total waste generated in the Town is projected to remain constant, averaging less than 2 pounds per person per day. Corporate records show that the Briny Breezes residents discard between 2.5 and 4.5 yards of compacted solid waste every 10 days in non-peak seasons. Corporation officials report that a collection compactor becomes full in about 10 days. The SWA tables indicate that a yard of compacted garbage weighs 402 pounds. The compacted garbage in non-peak seasons runs between 1,005 and 1,809 pounds every 10 days. The peak season population of Briny Breezes produces between 8,000 and 9,900 pounds of waste every 10 days. This indicated that the residents of the Town of Briny Breezes produce about one ton of garbage every collection day, i.e., every 10 days, during non-peak seasons and about three tons a collection day in peak population periods. These figures indicate that each Briny Breezes resident contributes less than 2 pounds a day, which rate is nearly one-half of the county average. Table 11 on the following page shows that the Town s projected population increase to 1,731 persons will not adversely affect the SWA s total capacity for solid waste disposal. 54

63 Table 11. Solid Waste Disposal (Note: The daily rate of discard in 1988 was listed at 6.5. The figure presently used by SWA is 4.5) Peak Daily Consumption Daily Waste Population by Per Person (lbs) Generated (lbs) Year Daily Capacity of County Facility Briny Breezes Percentage of County , ,000,000 pounds , , ,000,000 pounds , , ,000,000 pounds Source Palm beach County Solid Waste Authority Potable Water Facility Sub-Element Potable Water Supply Potable water for Briny Breezes is supplied by the City of Boynton Beach water treatment plant. The two Boynton Beach plants have a design capacity of 28,000,000 gallons per day (mgd). However, an average of 23 mgd is available for daily use. The historical high for daily usage was mgd. The City of Boynton Beach plans to further expand its potable water capacity by constructing a reverse osmosis plant in the Eastern Wellfield, which will add an additional 7.5 mgd. Demand attributable to Briny Breezes in the 1989 Comprehensive Plan was estimated at 94,200 gallons based on per capita water usage of 100 gallons daily. This figure is below the 150 gallon per day estimate for all residential users in the Boynton Beach system. As discussed in the Conservation Element, the P&Z/LPA presently estimate that the Town s present daily average 55

64 for water usage averages 71 gallons per person, and this should be used as the figure for determining the Town s future water needs, subject to revision downward if substantial reduction in water usage is realized from the Town s water conservation efforts. Prior strategy relied on the belief that small parcels of land and small mobile home type housing units will continue to consume the same amount of water as before, but this has not been borne out by present usage. The P&Z/LPA also expects that if there is a future shift in the type of residential units from mobile homes to conventional styled residences, the Town s implementation of modern day water conservation methods will serve to maintain this low level of water usage. The Town participates in the countywide water conservation policies that are mandated by the South Florida Water Management District. Boynton Beach water usage figures show that Briny Breezes uses about.07 percent per day of the total waterworks capacity. The potential growth of Briny Breezes to 1,731 as outlined in the Future Land Use Element, should continue to keep the Briny Breezes consumption figure significantly below the consumption rate of surrounding communities. This assumption is based on the usage of Briny Breezes neighbor to the north, the Town of Ocean Ridge. Figures from Boynton Beach show that the consumption rate of Ocean Ridge is.027, for that Town s population of 1,713. The Ocean Ridge figure is consistent with the county per capita estimate of 150 gallons a day. Water Distribution System The water distribution system in Briny Breezes is owned by the Town. The main water transmission lines (those normally found beneath the streets of Briny) and the fire hydrant system are owned and maintained by the Town. This system was transferred from Briny Breezes, Inc., to the Town in At that time, in the area east of State Road A1A, the Town replaced all the existing water mains, installed a new 8-inch water main along Old Ocean Boulevard and added five fire hydrants to the distribution system. In 2005, work was completed in the area west of State Road A1A where the Town installed a new 8-inch water main along Banyan Road together with five more fire hydrants. The ownership of the Town s system extends to the point of delivery of service to the mobile homes and corporate buildings. The Corporation owns the feed lines from the point of service to the individual consumers, and has initiated a program to improve 56

65 any residential service feed connections that have become outmoded. Needs Assessment The Town predicts a slight increase in water demand if the proposals of limited multi-story buildings and homes, other than the mobile home variety, become reality. The Town s potable water supply needs will continue to be served by the City of Boynton Beach. The Town will work closely with its service provider to assure that potable water needs continue to be met satisfactorily, including keeping the level of service at 100 gallons per person per day. As noted above, an increase to 1,731 residents should keep the Town consumption below the figures for Ocean Ridge, where per person consumption runs about 150 gallons a day. Drainage Facilities Sub-Element Rainfall Average annual rainfall is about 60 inches and the total for 2006 (the last annual figure available) was inches. The annual level varies substantially, but is usually between 40 inches and 80 inches annually. The lowest annual rainfall reported was 38 inches in 1971 and the highest was 85 inches in The one-month record for South Palm Beach County, according to the U.S. Weather Bureau, was September, 2004, when inches of rain fell. The lowest monthly figure was.04 inches in April, More than 75 percent of the precipitation occurs between May and October, with an average of over 7.5 inches of rain in each of these months. During the dry season, rainfall averages between 1 and 3.5 inches per month. The one-day, ten-year frequency storm has about 9 inches of rainfall and the twenty five-year storm has about 10.5 inches of rainfall. Terrain Briny Breezes is located on a barrier island characterized by gently sloping terrain rising from near sea level at the Intracoastal and Atlantic Ocean to slightly more than eight feet at the center of the island. Most of the drainage swales in Briny Breezes empty into places which are composed 57

66 of fine sand with rapid to very rapid percolation rates to the groundwater channel. Run-Off Quantities According to the Palm Beach County Comprehensive Plan, an estimated 47 percent of the rainfall in the County is discharged to the Intracoastal Waterway or the Atlantic Ocean through natural drainage. Based upon the average rainfall recorded for Palm Beach County, if Briny Breezes were to receive an annual rainfall 60 inches, the average daily rainfall drainage discharge for the Town would be approximately 35,000 gallons. The highly localized and seasonal characteristics of rainfall in the form of summer thundershowers in Palm Beach County prohibit a more accurate estimate of average daily flows. During the wet months when Briny Breezes can receive over six inches of rainfall in a given month, the drainage flow can rise to over 45,000 gallons per day. Drainage Facilities There are three public agencies which own and maintain drainage facilities in Briny Breezes. The Florida Department of Transportation is responsible for maintaining drainage on State Road A1A. The Army Corps of Engineers maintains the Intracoastal Waterway. Briny Breezes Inc. is responsible for maintaining local storm water drains. Surface water runoff also drains into the Atlantic Ocean through natural processes. The drainage facilities in Briny Breezes are located on the private property owned by the Corporation. This drainage system uses what is known as the French Drain design, which consists of perforated pipe filled with small stones and laid underground to disperse storm water runoff by providing seepage into the groundwater table. Storm water is also drained through two storm water outfall lines sized between six and ten inches in diameter, located in the seawall along the Intracoastal Waterway. One site in Briny Breezes was identified as having inadequate drainage facilities to handle heavy rains of short duration. The Town experienced some minor flooding in the area bounded by Dock Drive on the south, Banyan Boulevard on the east, Flamingo Drive on the north, and Marine 58

67 Way on the west. The Corporation made arrangements to alleviate the situation by constructing a drainage system of inlets and culverts to direct runoff to a collection sump fitted with a 7.5 horsepower pump to discharge the stormwater into the Intracoastal Waterway. The other areas of the Town drain rapidly enough to prevent long-term street or yard flooding, even during normal to moderately severe storm water events. Prolonged heavy rains in the area can produce some degree of flooded streets and driveways, but the effects are only temporary. Needs Assessment The drainage facilities in Briny Breezes are located on the private property of Briny Breezes, Inc., and are maintained by the Corporation. The facilities are adequate to handle storm water runoff. Regular maintenance of the drainage infrastructure by the Corporation and installation of replacement facilities when needed will assure that drainage problems are minimized. Natural Groundwater Aquifer Recharge Sub-Element Groundwater The water table is only a few feet above sea level in Briny Breezes and has a slight grade toward sea level at the Atlantic Ocean and the Intracoastal Waterway. Although urbanization has increased the amount of surface water runoff, the rate of infiltration remains high. The variation in hydraulic conditions makes quantitative assessment of groundwater in the Town very difficult to determine with a significant degree of accuracy. Areas of natural groundwater recharge and discharge constantly change in relation to the intensity, distribution, and duration of rainfall. Groundwater quantity conditions are affected by evaporation from plants since the water table is so near the ground surface and penetrated by root systems. Rainfall penetrates the ground and flows through the Pamlico sand and Anastasia limestone formations into the shallow aquifer. Downward penetration is prevented by the confining beds of Tamiami formation. The groundwater then flows laterally on a slight gradient toward the coast. Withdrawal of fresh water near the coast can result in salt-water intrusion. Therefore, there are no wells in Briny 59

68 Breezes to withdraw groundwater. Recharge of the shallow aquifer in Briny Breezes occurs from surface water infiltration and the storm water drainage system. During the wet season, water seeps outward from the canals to the water table. During the dry season, groundwater flows into the canals and is discharged into the Intracoastal Waterway. Recharge characteristics vary considerably from area to area in Palm Beach County; significant recharge occurs in the western water conservation areas. Briny Breezes is not identified as being in a prime aquifer recharge area. Needs Assessment Briny Breezes does not contain any prime aquifer recharge area or areas that are prone to contamination or excessive groundwater withdrawals. The regulations and programs of Palm Beach County and the South Florida Water Management District govern water withdrawal for land use and development and are adequate to protect water recharge functions. Recommendations 1. The Town should continue its present policy of timely maintenance of the sewer mains and lift stations comprising its wastewater collection system. 2. The Town should continue its present policy of cooperating with the South Central Regional Wastewater Treatment and Disposal Board of Palm Beach County and the cities of Boynton Beach and Delray Beach for the adequate treatment and disposal of its wastewater discharge. 3. The Town should continue its present policy of participating in the countywide water conservation regulations of the South Florida Water Management District for present and future development. 4. The Town should continue its present policy of cooperating with the City of Boynton Beach, its service provider, to assure that the Town s potable water needs continue to be satisfactorily met, including maintaining the present level of service in the range of 68 to 74 gallons per person per day when the expected increase in the Town s population occurs. 5. The Town should continue its present policy of timely maintenance of the Town s water distribution mains and fire hydrant system to provide adequate service for the needs of the Town s residents. 60

69 6. REVIEW OF COASTAL MANAGEMENT ELEMENT Introduction Located entirely on a barrier island, the Town of Briny Breezes is wholly within the coastal area of Palm Beach County. Thus, the coastal area boundaries of Briny Breezes are coterminous with the municipal limits of the Town's jurisdiction. There are two coastal interfaces within the Town, namely the beach frontage of the Atlantic Ocean on the Town s east boundary, and the seawall frontage facing the Intracoastal Waterway on the west. Both areas are zoned R-1 Zoning District on the Town s Official Zoning Map, which is the Town s Recreation Zone. This zoning classification imposes significant restrictions upon the allowable uses for any future development of these areas. Water-Dependent and Water-Related Uses The water-related uses within the Town s coastal zone are the Corporation s clubhouse on the Atlantic Ocean beach, and the Corporation s open parkways fronting on the Intracoastal Waterway on the west. The water-dependent use located within the Town is the Corporation s marina adjacent to the Intracoastal Waterway, and the three finger canals. There are no land uses within the Town that provide support or service for water-dependent uses other than for housing. Figure 10 on the following page shows the location of the water-dependent and water-related uses within the Town. Land Uses and Facilities Related to the Coastal Zone Since the adoption of the Coastal Management Element of the 1989 Comprehensive Plan, the Town s coastal zone has remained essentially unchanged. At the beachfront of the Atlantic Ocean, improvements were made in 1991 to modernize and improve the Corporation s previous oceanfront clubhouse and cabanas. This was accomplished without any increase in the original building s footprint or mass that otherwise would have lessened the excellent amenities of the natural beauty of the oceanfront. In addition to complementing the bathing and swimming activities, the location of the clubhouse on the beach affords the Town s residents with a permanent structure for use as a community center for indoor social events that provides an unobstructed ocean view from its veranda. 61

70 Figure 10. Location of Water-Dependent & Water-Related Uses within the Town Water-Dependent and Water-Related Uses Municipal Boundary VVater-Dependent and Water-Related Uses At the Town's western boundary, two open parkway areas are located at the foot of the Intracoastal Waterway, and provide residents with passive outdoor recreational opportunities of picnicking and fishing in a setting with a waterway view. The Town's coastal zone also includes a yacht. ibasin, which has been improved as a marina, and three finger canals, which are undeveloped. The yacht basin and the finger canals are all improved with seawalls except for the 62

71 west where they open into the Intracoastal Waterway. By applying the recreational zoning restrictions on the beachfront and the parkways, the Town has allowed these portions of the coastal zone to be used for low intensity, passive recreational uses, while still preserving the environment and conserving the natural features within those areas. The seawall enclosed area of the yacht basin does not provide the same amenities as the beach and parkways or need the same protective measures, so it is a coastal area more appropriately development for marina use. There is no plan at present to further develop or add improvements to the three finger canals. The Town's natural resources, including vegetative cover and marine and estuarine wetlands were fully addressed in the Coastal Management Element of the 1989 Comprehensive Plan. An environmental assessment was conducted by Environmental Services, Inc. of Jupiter, Florida, in At the time that firm conducted its on-site inspections, the technicians found no state or federal listed species in the Town. However, they did identify the Atlantic Beach front and the Intracoastal Waterway as suitable habitat for several species as shown in Table 12 below. Table 12 Town s Suitability for Listed Species Species Status Agency Johnson s seagrass (Halophila johnsonii) T USDA Florida manatee (Trichechus manatus latirostrus) E FWS, FWC Brown pelican (Pelecanus occidentalis) SSC FWC American oystercatcher (Haematopus palliatus) SSC FWC Osprey (Pandion haliaetus) SSC FWC Least tern (Sterna antillarum) T FWC Royal tern (Sterna maxima) SSC FWC Little blue heron (Egretta caerulea) SSC FWC Tricolored heron (Egretta tricolor) SSC FWC Loggerhead (Caretta caretta) T FWS, FWC Green turtle (Chelonia mydas) E FWS, FWC Leatherback (Dermochelys coriacea) E FWS, FWC Hawksbill (Eretmochelys imbriacata) E FWS, FWC Kemp s ridley (Lepidochelys kempii) E FWS, FWC E = Endangered Species T = Threatened Species SSC = Species of Special Concern Source: Environmental Assessment, Briny Breezes, prepared by Todd Mimnaugh, Environmental Services, Inc., Jupiter, Florida (March 2007) 63

72 A review of this Environmental Assessment was subsequently submitted to the Town s Planning and Zoning Board/Local Planning Agency in conjunction with the preparation of this Report by Paul Davis, the Environmental Manager of the Palm Beach County Department of Environmental Resources Management. In his evaluation, Mr. Davis stated, in part, that he was confident, based upon his familiarity with local conditions in the Town of Briny Breezes and his 28 years of professional experience in listed species management in Palm Beach County, that all of the species listed in the above Environmental Assessment, with the possible exception of the American oystercatcher (Haematopus palliatus), have been observed and can be found within or immediately adjacent to the Town. Because the State of Florida is declared to be a refuge and sanctuary for the Florida manatee or sea cow, the Florida state marine mammal, protection of manatees and enforcement of applicable rules and laws are an important consideration in the Town of Briny Breezes. Given the Town s proximity to the Intracoastal Waterways, the Town deems implementation of manatee protection programs, as well as the protection programs for all other Florida marine and wildlife species, to be an important component in the Town s planned redevelopment to the estimated peak winter season population of 1,731 persons in the next ten-year planning period. It is the Town s intent to preserve the available open space at the beachfront and parkways areas for the continued recreational uses presently enjoyed by the Town s residents and at the same time, to allow the opportunity for the natural habitats of desirable, non-endangered species of wildlife, fish, or flora to flourish. These open areas will also continue to serve the people as sites for observing scenic beauty or vistas, which offer passive recreational enjoyment. It is the intent of the Town that such existing open space areas shall be left in their present natural state to the greatest extent possible, rather than be developed as the location for intense recreational uses. The Town will limit any future development in these portions of the coastal zone to low density and low intensity of use. Any construction activity in the these areas which involve structural changes or exterior remodeling, or any new development require the issuance of a special exception by the Town prior to the issuance of a building permit for any work. Vehicular traffic is specifically prohibited in environmentally sensitive areas and is restricted to a necessary minimum elsewhere in the coastal zone under the limitations of the recreational zoning district. 64

73 Coastal Construction Control Line The Coastal Construction Control Line ("CCCL") for the Town is generally located landward of Old Ocean Boulevard. In addition to the restrictions imposed under the Town's recreation zoning district, all redevelopment within the Town's CCCL will be required to comply with the requirements of the Beach and Shoreline Preservation Act pursuant to Parts 1 and 2 of Chapter 161, Florida Statutes, and also comply with base elevation requirements established by FEMA. Figure 11, below, shows the location of the CCCL in the Town of Briny Breezes. Figure 11. Location of the CCCL in the Town of Briny Breezes 65

74 Public Beach Access Public beach and shoreline access is provided by four public parks in nearby locations. There are three parks in the Town of Ocean Ridge to the north of the Town. These are the Palm Beach County Dunes Hammock Park, the Palm Beach County Ocean Inlet Park, and the City of Boynton Beach Public Park. In addition to these parks, public beach access is available at points where public streets of Ocean Ridge terminate at the beach. The Palm Beach County Dunes Hammock Park is currently undeveloped but it does provide public parking and accessways from the public street to the beach. The oceanside portion of the Ocean Inlet Park, which is on the south side of the South Lake Worth-Boynton Beach Inlet, is served by parking across State Road A1A. The City of Boynton Beach Park is a fully developed beachfront recreation park offering a picnic area, restrooms/bath houses, a concession stand, and 255 parking spaces. A pavilion and walkovers provide scenic beach overlooks and access to the beach at a number of points. The fourth area park, the Gulfstream County Park, is located south of the Town on State Road A1A in the unincorporated area of Palm Beach County. The facility includes a picnic area, restroom/bath houses, parking, and beach access. Private Beach Access The Town of Briny Breezes offers beach and shoreline access to its residents and their guests by means of private parklands and access points owned by the Corporation. The use of these recreational facilities is open to all residents of the Town. Private beach access within the Town of Briny Breezes is offered at private parklands and at points where private streets terminate at the beach. The major beach access point is the Atlantic Ocean Club, located on the east side of Old Ocean Boulevard at the terminus of Ruthmary Avenue. This facility has a clubhouse for indoor recreation as well as a landscaped picnic area and beach access. Other private beach access points include the terminus of Cordova Avenue, the Atlantic Ocean Club House and the terminus of Briny Breezes Boulevard. 66

75 Public Access to the Intracoastal Waterway Limited public access to the shores and waters of the Intracoastal Waterway and the Lake Worth lagoon is provided by the Briny Breezes Marina, which is owned by Briny Breezes, Inc. No facilities are provided for launching boats, only dockage and fixed mooring of vessels. The marina offers 68 wet slips to both Briny Breezes residents and the general public. About 40 percent of the marine's customers are non-residents. In the adjoining area to the north, additional public access to the Intracoastal Waterway is provided at the Palm Beach County Beach and Marina in the Town of Ocean Ridge. This marina offers public boat dockage facilities on a day use basis, a picnic area, a concession stand, and swimming and fishing areas. The park provides 150 parking spaces for visitors. Private Access to the Intracoastal Waterway Shoreline The Corporation owns and maintains the two parkways located on the shoreline of the Intracoastal Waterway; they are available to all Briny Breezes residents. This is in addition to the access afforded the several mobile homes that front on the water. Conflicts among Shoreline Uses Except for the marina operation, all of the Intracoastal and ocean shoreline uses within the Town are developed for residential use or are maintained as recreation areas. All shorelines uses are compatible with each other in terms of land use and density or intensity of development. No conflicts among shoreline uses have been identified. Historic Resources No historic sites or resources within Briny Breezes have been listed on the National Register of Historic Places or the Florida Master Site File. No areas within the Town have been designated for historic preservation. 67

76 Hurricane Preparedness Since the 1989 Plan, the Town adopted a Hurricane/Emergency Policy in July, 1996, which was updated into the Town s Emergency Preparedness Manual in June, 2008, to meet the preparation and adoption of a post-disaster redevelopment plan. Before this can be completed, further study and evaluation of issues relating to the direction and extent of the Town s future development of the Town must be resolved. Element Evaluation The Coastal Management Element of the 1989 Comprehensive Plan has served the Town well. The nature, extent and area of the Town s coastal zone has remained essentially unchanged since the time of the Plan s adoption The Coastal Management Element fully addressed the numerous other issues relating to the Town's natural resources, including vegetative cover and marine and estuarine wetlands, and the waters and submerged lands of the Intracoastal Waterway and the Atlantic Ocean. It also adequately evaluated the living marine resources supported by the Town's wetlands, the functioning of those portions of the coastal barrier island within the Town's municipal limits, including the Atlantic beach and dune system. Except for the information presented by the environmental assessment conducted by Environmental Services, Inc. of Jupiter, Florida, in 2007, there has been little change in these natural conditions since the Plan s adoption, and therefore, these subjects do not need to be further addressed for purposes of this EAR review. Recommendations 1. The Town should continue its present policy of applying the recreational zoning restrictions on the beachfront and the parkway areas for low intensity, passive recreational uses which preserve the environment and conserve the natural features within those areas. 2. Given the Town s location on the Intracoastal Waterway, the Town should adopt and implement the state and county manatee protection programs, as well as the governmental protection programs promulgated for all other threatened or endangered Florida marine and wildlife species. 3. The Town should continue its present policy of allowing the small areas of open space at the beachfront and parkways to be used for passive recreational activities by the Town s 68

77 residents and allowing the natural habitats of desirable non-endangered species of wildlife, fish, and flora located thereon to flourish. These open areas are desirable as special locations unique within the Town which provide the residents with the opportunity to observe nature s scenic beauty and vistas, and are not of appropriate size, configuration or location to be developed for intense recreational uses. 4. The Town should continue its present policy that vehicular traffic shall be specifically prohibited in environmentally sensitive areas and restricted to a necessary minimum elsewhere in the coastal hazard zone under the limitations contained in the recreational zoning district regulations. 5. The Town should continue its present policy of periodically updating its Hurricane Emergency Policy and its Emergency Preparedness Manual to meet hurricane and natural disaster emergencies. The Town should also continue to update post-disaster redevelopment plan in coordination with the Town s future development plans. 7. REVIEW OF CONSERVATION ELEMENT Introduction The Conservation Element of the Briny Breezes Comprehensive Plan identifies the existing natural resource systems, resource uses, and pollution problems and evaluates the potential for conserving, utilizing and protecting the identified resources. This element has successfully served the needs of the Town and the Briny Breezes community up to the present. Before urban development began in southern Palm Beach County, the barrier island setting gave Briny Breezes a highly dynamic ecosystem with mangroves, sand pines, palmettos and dune formations. This ecosystem had changed decades prior to the 1989 Plan by the urbanization of the Town which reduced the natural environment to its present two locations for a habitat for wild life. These are the Atlantic Ocean beach on the Town s easterly boundary, where stands of sea oats and sea grape still flourish, and the strip of land on the Town s west boundary, fronting the sea-walled banks of the Intracoastal Waterway, which is maintained as grassed over, open space. Neither the ocean front clubhouse, which was rebuilt on its original site in 1991 nor the cabana which was added to the swimming pool area in 1993, intruded into the limited space available for a wildlife habitat. In 2007, the elimination of travel trailer rentals from Zoning District V gave the Town an additional 0.6 acre of open space. This area was cleared of 69

78 surface improvements and then sodded with grass so that it presently has no potential for exotic plant growth. With this one exception, there has been no change in the nature or extent of the Town s natural preservation area since the current Plan was adopted. Conservation of Vegetative Cover It is the Town s policy that every effort should be made to retain native vegetation associated with the ocean dunes. This vegetation moderates storm impacts and repels the dominance of exotic plants. Since Briny Breezes is presently substantially developed as a mobile home community, it does not anticipate any large changes in regard to the amount of native vegetation based upon projected population increases which may result from changes in the number and type of housing units anticipated in the future. Relationship to Coastal Management Element The Conservation Element for Briny Breezes is closely related to the Coastal Management Element because the Town is wholly located within the coastal area as defined pursuant to Florida statutes and administrative regulations. Both elements address the natural resources of the Town. Those resources and conservation issues that are not considered central to coastal management are addressed in the Conservation Element, including air and air quality, soils, minerals, floodplains, hazardous wastes, and potable water needs and sources. The Coastal Construction Control Line, which runs west of Old Ocean Boulevard, imposes substantial limitations on any further new construction to the east. Only the important natural resources are discussed in this element. A more detailed treatment of the Town s natural resources appears in the Coastal Management Element. Environmental Setting The environmental setting of Briny Breezes is characterized by a sub-tropical marine climate, as the relatively long summer season has warm temperatures and frequent rainfall. The winters are distinguished by mild temperatures and infrequent precipitation. The topography of the coastal ridge provides elevations reaching 9.5 feet above sea level at the highest point in 70

79 Briny Breezes just east of State Road A1A. Natural Water Resources As stated above, the two dominant water resource features of Briny Breezes are the Atlantic Ocean and the Intracoastal Waterway. The Intracoastal Waterway on the Town s western boundary contains the marina area and three finger canals, all of which are maintained by Briny Breezes, Inc. There are no rivers, lakes or ponds in Briny Breezes. Atlantic Ocean This area includes the beach territory of Briny Breezes from the mean high-water mark landward. The ocean is the dominant factor affecting life in Briny Breezes. Vegetation and dunes along the ocean are critical to moderating the effects of large storms. Retention of all remaining vegetation is essential. Intracoastal Waterway The Army Corps of Engineers has authority over the Intracoastal Waterway as part of its comprehensive system of water navigation. A 1939 act of Congress authorized the Corps to dredge and maintain a navigable channel between the Florida mainland and the outer Florida barrier islands from Jacksonville to Miami. For most of its length, it is maintained at a minimum depth of 12 feet. Due to reductions in available funding for dredging projects, some parts of the waterway are assigned to having a minimum depth of 9 feet and others to a minimum of only 7 feet. For dredging purposes, the Intracoastal Waterway in Palm Beach County is divided into four districts. Briny Breezes lies in District IV, which extends from Hypoluxo Island on the north to the south county line in Boca Raton. The dredging frequency for this segment of the waterway is presently set for every 11 years. 71

80 Geology Barrier islands are coastal ridges that are additionally separated from the mainland on their landward sides. The geology is characterized by Pleistocene sand and Holocene sand deposits. The typical beach dune is composed of quartz and calcareous sands with a high PH. Ancient interior dunes and topsoil are composed of highly leached quartz sands with a low PH. Coastal Ridge Vegetation In its native form, coastal ridges contain sand pines, woody scrubs, palmettos, and sea-oats on the actual dune formations. The dunes are composed of highly permeable sands which provide shelter to scrub-jays, songbirds, gophers, tortoises, rodents and reptiles. Dunes can be subject to invasion and dominance by Australian pines. This invasion of exotics is accelerated when dune vegetation is destroyed. The Town contains few native functioning coastal ridge vegetative areas landward of the secondary dunes of the Atlantic Ocean. Air and Air Quality The Environmental Protection Agency (EPA) through its partner agencies calculates the Air Quality Index (AQI) and provides national air quality information. The Index is a standards indicator that reports five major air pollutants regulated by the Clean Air Act: ground-level ozone, particle pollution (also known as particulate matter), carbon monoxide, sulfur dioxide, and nitrogen dioxide. For each of these pollutants, the EPA has established national air quality standards to protect the public health. The level of each pollutant is assigned a health rating based upon National Ambient Air Quality Standards. The standards for the Town are contained within the statistics for Palm Beach County as a whole and are rated in the Good category for each of the five pollutants, which is the highest classification. In prior years the Pollutant Standard Index for Palm Beach County showed that the early morning levels of pollutants were rated "good" 97 percent of the time, and "moderate" rating 72

81 three percent of the time. The afternoon levels of pollutants registered "good" 95 percent of the time and "moderate" five percent of the time. Countywide Sources of Air Pollution The present Air Quality Reports for Palm Beach County indicate that transportation activities produced 63 percent of the total pollutants in the county. Other sources of emission include sugar cane burning, fuel combustion, mineral products, solid waste disposal and volatile organic emissions. None of these are significantly applicable to Briny Breezes. Briny Breezes Air Quality Air quality in the Town is excellent due to the presence of the ocean breezes and the absence of the common sources of emission within and adjacent to the Town which are present in other areas of Palm Beach County. Soils and Soil Erosion There has been no change in the descriptive analysis of the soil classifications present within the Town since the 1989 Comprehensive Plan. No significant water or wind induced soil erosion has been observed in upland Briny Breezes. Floodplains The Town of Briny Breezes contains flood plain areas. The Federal Emergency Management Agency (FEMA) insures buildings and personal property located in flood plain areas against loss from flooding under the National Flood Insurance Program. FEMA has defined specific kinds of flood zones in order to rate its risk, as an insurer, against the potential for flood loss according to the flood zone in which the property is located. Floodplains that are inundated during a 100-year raininduced flood event are called A Zones. Areas subject to coastal storm surge flooding are called V Zones. These flood classification zones and the other flood zones for the Town that are not within the 100-year floodplain are listed on Table 13 on the following page. 73

82 Table 13. Flood Insurance Classification Zones for Briny Breezes The following three zones are high risk areas. Zone V8 Zone A5 Zone AH Coastal areas subject to the 100-year coastal flood with a 1 % or greater chance of flooding and an additional hazard associated with storm waves. These areas have a 26 % chance of flooding over the life of a 30-year mortgage. Water can be expected to reach 10 feet above Mean Sea Level. In the calculation of this base flood elevation, wave velocity has been taken into consideration. Areas that are subject to the 100-year flood with a 1 % annual chance of flooding and a 26 % chance of flooding over the life of a 30-year mortgage. Water can be expected to reach 7 feet above Mean Sea Level. Areas with a 1 % annual chance of shallow flooding, usually in the form of a pond, with an average depth ranging from 1 to 3 feet above ground level. These areas have a 26 % chance of flooding over the life of a 30-year mortgage. The following three zones are low risk areas. Zone B Zone C Zone X These areas lie outside the 1 % annual chance flood plain, or are areas of 1 % annual chance of sheet flow flooding where average depths are less than 1 foot, or are areas of 1 % annual stream flooding where the contributing drainage area is less than 1 square mile, or are areas protected from the 1 % annual chance flood by levees. No base flood elevations or depths are shown within these zones. Flood insurance purchase is not required in these zones. These are moderate to low risk areas. Source Federal Emergency Management Agency (FEMA) Under the Flood Insurance Program, FEMA has identified flood plain areas nationwide for each city and town in the country, and has assigned flood insurance classification zones to specific geographical areas in each municipality. These designated flood zones are shown on Flood Insurance Rate Maps or Flood Hazard Boundary Maps. The Flood Insurance Rate Map applicable to the Town is shown on Table 14 on the following page. 74

83 Table 14. Flood Insurance Rate Map As shown on the Flood Insurance Rate Map, the Town's flood prone areas include Zone V8, which located along the Atlantic shoreline; Zone A5, which covers most of the Town lying west of State Road Al A; and Zone AH, which includes a circular area centering on the middle of Ruthmary Avenue. 75