Flagler County Board of County Commissioners Workshop ...

Flagler County Board of County Commissioners Workshop Agenda

Monday, July 12, 2021 • 1:00 p.m.

Government Services Complex, 1769 E. Moody Blvd., Bldg 2, Board Chambers, Bunnell, FL 32110

1. Call to Order

2. Pledge to the Flag and Moment of Silence

3. Welcome: Flagler County Board Chair

4. Impact Fee Discussion

5. Public Comment

6. Adjournment

While this is a workshop only and no decisions are expected to be made by any of the governmental bodies, if a person decides to appeal any matter that may be discussed for a future proceeding, a record of the workshop may be needed and, for such purposes, the person may need to ensure that a verbatim record of the workshop is made.

In accordance with the Americans with Disabilities Act, persons needing assistance to participate in this meeting should contact the (386) 313-4001 at least 48 hours prior to the meeting.

FLAGLER COUNTY BOARD OF COUNTY COMMISSIONERS WORKSHOP / AGENDA ITEM #4

SUBJECT: Second Workshop for the Update of Flagler County Impact Fees DATE OF MEETING: July 12, 2021 OVERVIEW/SUMMARY: On May 17, 2021, the Board held its first workshop to review the proposed impact fees. The approach used by Tindale-Oliver is a consumption-based methodology that calculates the impact fee – at the time of building permit issuance for new residential and non-residential uses, as applicable – based on the consumption of capacity by new growth, with the goal of maintaining the established level of service standards. Impact fees work best when there is high growth and limited alternative funding. If ultimately adopted, interlocal agreements with the municipalities will be needed to collect specific impact fees within each jurisdiction. The goal here is not to duplicate an impact fee that is presently required and collected elsewhere, but to cooperatively manage growth in a manner so as to ensure a dedicated funding mechanism that helps to offset the negative externalities – the impacts to public infrastructure and service provision – caused by new growth. The Board may ultimately adopt impact fees at the full proposed rate, or may adopt reduced fees. Likewise, the Board is not obligated to adopt an all-or-none approach as to the range of proposed impact fees: the Board may choose to adopt some of the impact fees and not adopt others. This is the second of two required public workshops for the adoption of the proposed impact fees, and is intended to provide for Board review of the proposed impact fees while meeting the minimum workshop requirement consistent with the amendment to the Florida Impact Fee Act enacted through Chapter 2021-63, Laws of Florida. Following this workshop, the Board may opt for another workshop, or may move forward with one or more public hearings to consider adoption of the impact fee ordinance. DEPARTMENT CONTACT: Growth Management, Adam Mengel (386) 313-4065 ATTACHMENT: 1. Impact Fee Update Study 2. Chapter 2021-63, Laws of Florida

Flagler County

Impact Fee Update Study

Final Report June 14, 2021

Prepared for:

Flagler County Growth Management

1769 E. Moody Boulevard

Bldg #2, Suite 103

Bunnell, Florida 32110

ph (386) 313-4003

Prepared by:

Tindale Oliver

1000 N. Ashley Dr., Suite 400

Tampa, Florida 33602

ph (813) 224-8862

fax (813) 226-2106

E-mail: [email protected]

0052010-00.19

Attachment 1

Tindale Oliver Flagler County June 2021 i Impact Fee Update Study

Flagler County Impact Fee Update Study

Table of Contents

I. INTRODUCTION .......................................................................................................... 1

Methodology ................................................................................................................... 1

Legal Overview ................................................................................................................ 2

Land Use Changes/Additions........................................................................................... 5

II. FIRE RESCUE/EMS FACILITIES ...................................................................................... 7

Facility Inventory ............................................................................................................. 7

Service Area and Demand Component ........................................................................... 9

Level of Service ................................................................................................................ 10

Cost Component .............................................................................................................. 12

Credit Component ........................................................................................................... 12

Calculated Fire Rescue & EMS Impact Fee Schedules ..................................................... 13

Impact Fee Schedule Comparison ................................................................................... 14

III. LAW ENFORCEMENT FACILITIES .................................................................................. 17



Level of Service ................................................................................................................ 19

Cost Component .............................................................................................................. 21


Net Law Enforcement Impact Cost.................................................................................. 24

Calculated Law Enforcement Impact Fee Schedule ........................................................ 25


IV. PUBLIC BUILDINGS ...................................................................................................... 29



Level of Service ................................................................................................................ 31

Cost Component .............................................................................................................. 31


Net Public Buildings Impact Cost ..................................................................................... 33

Calculated Public Buildings Impact Fee Schedule ........................................................... 34

Tindale Oliver Flagler County June 2021 ii Impact Fee Update Study


V. LIBRARY FACILITIES ..................................................................................................... 38



Level of Service ................................................................................................................ 40

Cost Component .............................................................................................................. 41


Net Library Facilities Impact Cost .................................................................................... 44

Calculated Library Facilities Impact Fee Schedule .......................................................... 44


VI. PARKS & RECREATION FACILITIES ............................................................................... 47

Park Land and Recreation Facilities Inventory ................................................................ 47

Service Area and Demand Component .......................................................................... 50

Level of Service ................................................................................................................ 50

Cost Component .............................................................................................................. 51


Net Parks & Recreation Facilities Impact Cost ................................................................ 58

Calculated Parks & Recreation Facilities Impact Fee Schedule ....................................... 58


VII. TRANSPORTATION ..................................................................................................... 61

Demand Component ....................................................................................................... 62

Cost Component .............................................................................................................. 64


Calculated Transportation Impact Fee ............................................................................ 70


Appendices:

Appendix A: Demand Component – Population: Supplemental Information

Appendix B: Cost Component – Building and Land Values: Supplemental Information

Appendix C: Transportation Impact Fee – Demand Component

Appendix D: Transportation Impact Fee – Cost Component

Appendix E: Transportation Impact Fee – Credit Component

Appendix F: Transportation Impact Fee – Calculated Impact Fee Schedule

Tindale Oliver Flagler County June 2021 1 Impact Fee Update Study

I. Introduction Flagler County is a high growth county, ranking among the top 10 Florida counties in terms of its

growth rate. To address growth related infrastructure needs, the County implemented

transportation, parks, and school impact fees. Of these, the transportation impact fee is

currently suspended. To reflect most recent and localized data, the County is interested in

updating transportation and parks impact fees. In addition, Flagler County is also evaluating fees

for the following service areas:

• Libraries

• Fire Rescue

• Emergency Medical Services (EMS)

• Law Enforcement

• Public Buildings

Flagler County has retained Tindale Oliver (TO) to prepare a technical study to update the

calculations for the two existing fees and develop fees for the five additional service areas. This

report serves as the technical study to support the calculation of impact fees.

Methodology

In developing the County’s impact fee program, a consumption-based impact fee methodology

is utilized, which is commonly used throughout Florida. A consumption-based impact fee charges

new development based upon the burden placed on services from each land use (demand). The

demand component is measured in terms of population per unit in the case of all impact fee

program areas in this study with the exception of transportation. In the case of transportation,

vehicle-miles of travel is used.

A consumption-based impact fee charges new growth the proportionate share of the cost of

providing additional infrastructure available for use by new growth. Unlike a “needs-based”

approach, the consumption-based approach ensures that the impact fee is set at a rate that does

not generate sufficient revenues to correct existing deficiencies. As such, the County does not

need to go through the process of estimating the portion of each capacity expansion project that

may be related to existing deficiencies. In addition, per legal requirements, a credit is subtracted

from the total cost to account for the value of future tax contributions of new development

toward any capacity expansion projects. In other words, case law requires that the new

development should not be charged twice for the same service.


Legal Overview

In Florida, legal requirements related to impact fees have primarily been established through

case law since the 1980’s. Impact fees must comply with the “dual rational nexus” test, which

requires that they:

• Be supported by a study demonstrating that the fees are proportionate in amount to the

need created by new development paying the fee; and

• Be spent in a manner that directs a proportionate benefit to new development, typically

accomplished through establishment of benefit districts (if needed) and a list of capacity-

adding projects included in the County’s Capital Improvement Plan, Capital Improvement

Element, or another planning document/Master Plan.

In 2006, the Florida legislature passed the “Florida Impact Fee Act,” which recognized impact fees

as “an outgrowth of home rule power of a local government to provide certain services within its

jurisdiction.” § 163.31801(2), Fla. Stat. The statute – concerned with mostly procedural and

methodological limitations – did not expressly allow or disallow any particular public facility type

from being funded with impact fees. The Act did specify procedural and methodological

prerequisites, such as the requirement of the fee being based on most recent and localized data,

a 90-day requirement for fee changes, and other similar requirements, most of which were

common to the practice already.

More recent legislation further affected the impact fee framework in Florida, including the

following:

• HB 227 in 2009: The Florida legislation statutorily clarified that in any action challenging

an impact fee, the government has the burden of proving by a preponderance of the

evidence that the imposition or amount of the fee meets the requirements of state legal

precedent or the Impact Fee Act and that the court may not use a deferential standard.

• SB 360 in 2009: Allowed fees to be decreased without the 90-day notice period required

to increase the fees and purported to change the standard of legal review associated with

impact fees. SB 360 also required the Florida Department of Community Affairs (now the

Department of Economic Opportunity) and Florida Department of Transportation (FDOT)

to conduct studies on “mobility fees,” which were completed in 2010.

• HB 7207 in 2011: Required a dollar-for-dollar credit, for purposes of concurrency

compliance, for impact fees paid and other concurrency mitigation required.


• HB 319 in 2013: Applied mostly to concurrency management authorities, but also

encouraged local governments to adopt alternative mobility systems using a series of

tools identified in section 163.3180(5)(f), Florida Statutes, including:

1. Adoption of long-term strategies to facilitate development patterns that support

multi-modal solutions, including urban design, and appropriate land use mixes,

including intensity and density.

2. Adoption of an area-wide level of service not dependent on any single road

segment function.

3. Exempting or discounting impacts of locally desired development, such as

development in urban areas, redevelopment, job creation, and mixed use on the

transportation system.

4. Assigning secondary priority to vehicle mobility and primary priority to ensuring a

safe, comfortable, and attractive pedestrian environment, with convenient

interconnection to transit.

5. Establishing multi-modal level of service standards that rely primarily on non-

vehicular modes of transportation where existing or planned community design

will provide adequate level of mobility.

6. Reducing impact fees or local access fees to promote development within urban

areas, multi-modal transportation districts, and a balance of mixed-use

development in certain areas or districts, or for affordable or workforce housing.

Also, under HB 319, a mobility fee funding system expressly must comply with the dual

rational nexus test applicable to traditional impact fees. Furthermore, any mobility fee

revenues collected must be used to implement the local government’s plan, which

served as the basis for the fee. Finally, under HB 319, an alternative mobility system,

that is not mobility fee‐based, must not impose upon new development any

responsibility for funding an existing transportation deficiency.

• HB 207 in 2019: Included the following changes to the Impact Fee Act along with

additional clarifying language:

1. Impact fees cannot be collected prior to building permit issuance; and

2. Impact fee revenues cannot be used to pay debt service for previously approved

projects unless the expenditure is reasonably connected to, or has a rational nexus

with, the increased impact generated by the new residential and commercial

construction.


• HB 7103 in 2019: Addressed multiple issues related to affordable housing/linkage fees,

impact fees, and building services fees. In terms of impact fees, the bill required that

when local governments increase their impact fees, the outstanding impact fee credits

for developer contributions should also be increased. This requirement was to operate

prospectively; however, HB 337 that was signed in 2021 deleted that clause and making

all outstanding credits eligible for this adjustment. This bill also allowed local

governments to waive/reduce impact fees for affordable housing projects without having

to offset the associated revenue loss.

• SB 1066 in 2020: Added language allowing impact fee credits to be assignable and

transferable at any time after establishment from one development or parcel to another

that is within the same impact fee zone or impact fee district or that is within an adjoining

impact fee zone or district within the same local government jurisdiction. In addition,

added language indicating any new/increased impact fee not being applicable to current

or pending permit applications submitted prior to the effective date of an ordinance or

resolution imposing new/increased fees.

• HB 1339 in 2020: Required reporting of various impact fee related data items within the

annual financial audit report submitted to the Department of Financial Services.

• HB 337 in 2021: Placed limits on the amount and frequency of fee increases, but also

included a clause to exceed these restrictions if the local governments can demonstrate

extraordinary circumstances, hold two public workshops discussing these circumstances

and the increases are approved by two-thirds of the governing body. This act is

retroactive to January 1, 2021.

The following paragraphs provide further detail on the generally applicable legal standards.

Impact Fee Definition

• An impact fee is a one-time capital charge levied against new development.

• An impact fee is designed to cover the portion of the capital costs of infrastructure

capacity consumed by new development.

• The principal purpose of an impact fee is to assist in funding the implementation of

projects identified in the Capital Improvements Element (CIE) and other capital

improvement programs for the respective facility/service categories.

Impact Fee vs. Tax

• An impact fee is generally regarded as a regulatory function established based upon the

specific benefit to the user related to a given infrastructure type and is not established


for the primary purpose of generating revenue for the general benefit of the community,

as are taxes.

• Impact fee expenditures must convey a proportional benefit to the fee payer. This is

accomplished through the establishment of benefit districts as needed, where fees

collected in a benefit district are spent in the same benefit district.

• An impact fee must be tied to a proportional need for new infrastructure capacity created

by new development.

This technical report has been prepared to support legal compliance with existing case law and

statutory requirements and documents the methodology used for impact fee calculations for

each fee in the following sections, including an evaluation of the inventory, service area, level of

service (LOS), cost, credit, and demand components. Information supporting this analysis was

obtained from Flagler County and other sources, as indicated.

Land Use Changes/Additions

As part of this update study, the following land uses were revised/added to the Flagler County

impact fee schedules to reflect the most recent data on demand variables:

• Multi-Family Low-Rise, Mid-Rise, High-Rise – Based on ITE 10th Edition, the apartment

and condo/townhouse land uses were combined into a single “multi-family” category

that is tiered based on the number of floors (charged per dwelling unit), which is used

for the transportation impact fee.

• Congregate Care Facility – land use added to the schedule (charged per dwelling unit).

• Public Park – the general recreation, local park, and district park land uses were

combined into a single “public park” land use (charged per acre).

• RV Park – land use added to the schedule and charged per site.

• Marina – land use added to the schedule and charged per berth.

• Golf Course – land use added to the schedule and charged per hole.

• Health/Fitness Club – land use added to the schedule and charged per 1,000 square

feet.

• Major Sports Facility – this land use was removed from the impact fee schedule due to

lack of data.

• Several levels of private school facilities were added to the land use schedule:

o Elementary School (Private), charged per student

o Middle/Jr High School (Private), charged per student


o High School (Private), charged per student

o University/Jr College <=7,500 students (Private), charged per student

o University/Jr College >7,500 students (Private), charged per student

• General Office – land use square footage tiering was removed. This was because ITE

10th Edition revisions resulted in minimal variation among different tiers.

• Medical Office – land use separated into square footage tiers

o Medical Office <=10,000 sq ft

o Medical Office >10,000 sq ft

• Retail/Shopping Center – land use square footage tiering was removed. This was

because ITE 10th Edition revisions resulted in minimal variation among different tiers.

• Gas Station w/Convenience Market – land use was tiered based on ITE 10th Edition re-

alignment, charged per fuel position:

o Gas Station w/Convenience Market <2,000 sq ft;

o Gas Station w/Convenience Market 2,000 to 2,999 sq ft; and

o Gas Station w/Convenience Market 3,000+ sq ft.

• CBD Sandwich Shop – this land use was removed from the impact fee schedule due to

lack of data.


II. Fire Rescue & EMS Facilities

This section provides the results of the fire rescue and EMS impact fee analysis. Flagler County

provides fire rescue services to the unincorporated county and the cities of Bunnell, Beverly

Beach, and Marineland. EMS services are provided countywide. This section develops two sets

of fee schedules: one for fire rescue services and the other for EMS. Several elements addressed

in this section include:

• Facility Inventory

• Service Area and Population

• Level of Service

• Cost Component

• Calculated Impact Fee Schedules

• Impact Fee Schedule Comparison

Facility Inventory

Table II-1 presents the buildings and land inventory associated with the fire rescue and EMS

services in Flagler County. Given that same stations provide both services, the square footage

used by each service was identified. This distribution is resulted in approximately 26,000 square

feet of fire rescue building space and 4,000 square feet of EMS building space. Similarly, the

acreage distribution included 15.8 acres for fire rescue related building space and 1.8 acres for

EMS facilities.

Cost estimate for buildings is based primarily on insurance values, cost information obtained

from other Florida jurisdictions and input from the County representatives. Land values are

based on a review of recent purchases, current value of land where existing facilities are located

based on information obtained from the Flagler County Property Appraiser as well as vacant land

sales and values of similarly sized and located parcels.

Based on this review and analysis, the building value is estimated at $300 per square foot for

stations and $150 per square foot for support buildings. The land value is estimated at $20,000

per acre. These cost estimates result in a total building and land value of approximately $7.7

million for fire rescue services and $1.3 million for EMS services. A more detailed explanation of

building and land value estimates is included in Appendix B.


Table II-1

Fire Rescue/EMS Buildings and Land Inventory

1) Source: Flagler County 2) Source: Flagler County 3) Building square footage multiplied by $300 per square foot for fire/EMS stations and $150 per square foot for other buildings. Additional information is provided in

Appendix B. 4) Acreage multiplied by land value per acre (Item 10). 5) Sum of building and land value (Items 3 and 4) 6) Located on Airport property -- acreage associated with the station is provided by Flagler County. 7) Located at park property - acreage is included in the parks inventory. 8) Located on an 80.52-acre site with a total square footage of 61,117. Acreage reflects the portion associated with the Burn Building square footage. 9) Total building value divided by building square footage 10) Source: Appendix B

Fire

RescueEMS Total

Fire

RescueEMS Total Fire Rescue EMS

Fire

RescueEMS Fire Rescue EMS

Fire Station 31 5821 South US Hwy 1 Bunnell, FL 32110 3,990 0 3,990 0.48 N/A 0.48 $1,197,000 $0 $9,600 $0 $1,206,600 $0

Fire Station 41 5593 North Ocean Shore Blvd Palm Coast, FL 32137 4,289 1,140 5,429 2.37 0.63 3.00 $1,286,700 $342,000 $47,400 $12,600 $1,334,100 $354,600

Fire Station 51 3055 County Road 13 Bunnell, FL 32110 2,366 952 3,318 0.49 0.20 0.69 $709,800 $285,600 $9,800 $4,000 $719,600 $289,600

Fire Station 62 100 Utility St Bunnell, FL 32110 3,206 952 4,158 2.88 0.85 3.73 $961,800 $285,600 $57,600 $17,000 $1,019,400 $302,600

Fire Station 71 89 E County Road 2006 Bunnell, FL 32110 3,948 0 3,948 1.75 N/A 1.75 $1,184,400 $0 $35,000 $0 $1,219,400 $0

Fire Station 81 500 Rodeo Road Ormond Beach, FL 32174 2,310 0 2,310 5.00 N/A 5.00 $693,000 $0 $100,000 $0 $793,000 $0

Fire Station 92(6) 130 Airport Road Bunnell, FL 32110 2,880 1,080 3,960 0.36 0.14 0.50 $864,000 $324,000 $7,200 $2,800 $871,200 $326,800

Ocean Rescue - Jungle Hut(7) 125 Jungle Hut Road Palm Coast, FL 32137 600 0 600 N/A N/A N/A $90,000 $0 N/A N/A $90,000 $0

Ocean Rescue - Malacompra(7) 115 Malacompra Road Palm Coast, FL 32137 600 0 600 N/A N/A N/A $90,000 $0 N/A N/A $90,000 $0

Burn Bldg/Training Tower(8) Justice Lane Bunnell, FL 32110 1,892 0 1,892 2.49 N/A 2.49 $283,800 $0 $49,800 $0 $333,600 $0

26,081 4,124 30,205 15.82 1.82 17.64 $7,360,500 $1,237,200 $316,400 $36,400 $7,676,900 $1,273,600

$282 $300

$20,000

Building Value(3) Land Value(4) Total Building & Land Value(5)Building Square Footage(1)

Building Value per Sq. Ft.(9)

Land Value per Acre(10)

Description Address CityAcres(2)

Total


In addition to land and buildings, the Flagler County fire rescue and EMS impact fee inventory

includes the necessary vehicles and equipment required to perform its services. As presented in

Table II-2, the total vehicle and equipment value is approximately $7.5 million for fire rescue

services and $3.1 million for EMS.

Table II-2

Fire Rescue/EMS Vehicle and Equipment Inventory

1) Source: Flagler County. Unit value includes equipment associated with each

individual vehicle. 2) Total value (Item 3) divided by unit count (Item 1) 3) Source: Flagler County

Service Area and Demand Component

As mentioned previously, Flagler County provides EMS services countywide and fire rescue

services to unincorporated county and the cities of Bunnell, Beverly Beach, and Marineland.

Given this, the appropriate benefit district for EMS is countywide while the benefit district for

fire rescue services includes the unincorporate county and the three cities.

In this technical study, 2020 weighted and functional population estimates are used to measure

level of service and the demand component. Because simply using weighted (permanent plus

weighted seasonal) population estimates does not fully address daily workers and visitors who

also benefit from EMS and fire rescue services, the “functional” weekly 24-hour population

approach is used to establish a common unit of demand across different land uses. Functional

population accounts for residents, visitors, and workers traveling in and out of the service area

throughout the day and calculates the presence of population at the different land uses during

the day, which represents the demand component of the impact fee equation. Appendix A

provides further detail on the population analysis conducted.

Description Count(1) Unit Value(2) Total Value(3)

Fire Rescue Services

Engine 10 $530,000 $5,300,000

Ladder Truck 1 $1,000,000 $1,000,000

Attack Truck 6 $125,000 $750,000

Staff Vehicles 9 $50,000 $450,000

Total 26 - $7,500,000

Emergency Medical Services

Rescue/Ambulance 11 $282,000 $3,102,000


Level of Service

Flagler County is served by four EMS stations. Although Flagler County is currently served by

seven fire rescue stations, the County intends to transfer two of the fire stations to other

agencies. Given this, five fire stations are included in the level of service (LOS) calculations. Based

on associated service area populations, the resulting current achieved LOS is one station per

4,500 weighted seasonal residents for fire rescue services and one station per 30,000 weighted

seasonal residents for EMS services.

In terms of functional residents, the County’s achieved LOS is 4,100 functional residents per fire

rescue station or 0.241 stations per 1,000 functional residents. In the case of EMS, the achieved

LOS is one station per 26,900 functional residents or 0.037 stations per 1,000 functional

residents. The use of current LOS in the impact fee calculations implies that the County intends

to continue to provide this level of infrastructure.

Table II-3

Current Level of Service (2020)

1) Source: Appendix A, Table A-1 and Table A-13 2) Source: Flagler County 3) Population (Item 1) divided by the number of stations (Item 2) 4) Number of stations (Item 2) divided by the population (Item 1) multiplied by 1,000

Tables II-4 and II-5 compare the levels of service for other select Florida counties to the level of

service of Flagler County. The LOS is displayed in terms of permanent population for 2020 for

the service area of all entities. Table II-4 includes jurisdictions that provide either only fire rescue

Weighted

Population

Functional

Population


Population(1) 22,454 20,714

Number of Stations(2)

5 5

Population per Station(3) 4,491 4,143

Current LOS (Stations per 1,000 Residents)(4) 0.223 0.241

Emergency Medical Services

Population(1) 120,183 107,519

Number of Stations(2)

4 4

Population per Station(3) 30,046 26,880

Current LOS (Stations per 1,000 Residents)(4) 0.033 0.037

Variable

2020


services or those that use the same stations to provide both fire rescue and EMS services. Table

II-5 includes jurisdictions that provide only EMS services.

Table II-4

Level of Service Comparison – Fire Rescue (2020)

1) Source: University of Florida, Bureau of Economic and Business Research (BEBR), April 1, 2020 Final

Population Estimates 2) Source: County/department websites 3) Service area population (Item 1) divided by the number of stations (Item 2) 4) Number of stations (Item 2) divided by the service area population (Item 1) divided by 1,000

Table II-5

Level of Service Comparison – EMS (2020)

1) Source: University of Florida, Bureau of Economic and Business Research (BEBR), April 1, 2020 Final

Population Estimates 2) Source: County/department websites 3) Service area population (Item 1) divided by the number of stations (Item 2) 4) Number of stations (Item 2) divided by the service area population (Item 1) divided by 1,000

Jurisdiction

Service Area

Population

(2020)(1)

Number of

Stations(2)

Residents

per Station(3)

LOS (Stations

per 1,000

Residents)(4)

Flagler County - Fire Rescue Services 20,036 7 2,862 0.349

Putnam County 61,364 18 3,409 0.293

Volusia County 126,039 21 6,002 0.167

Lake County 187,278 25 7,491 0.133

Marion County 306,112 31 9,875 0.101

St. Johns County 246,594 16 15,412 0.065

Seminole County 341,122 20 17,056 0.059

City of Palm Coast 89,437 5 17,887 0.056

Jurisdiction

Service Area

Population

(2020)(1)

Number of

Stations(2)

Residents

per Station(3)

LOS (Stations

per 1,000

Residents)(4)

Charlotte County 187,904 15 12,527 0.080

Collier County 387,450 24 16,144 0.062

Lake County 366,742 22 16,670 0.060

Manatee County 398,503 18 22,139 0.045

Flagler County - EMS 114,173 4 28,543 0.035


Cost Component

The cost component of the study evaluates the cost of all capital assets, including buildings, land,

vehicles and equipment. Table II-6 provides a summary of all capital costs, amounting to

approximately $15.2 million for fire rescue services and $4.4 million for EMS.

In addition, Table II-6 also provides the impact cost per functional resident, which is calculated

by multiplying the net asset value per station by the current LOS (stations per 1,000 functional

residents) and dividing by 1,000. As shown, this calculation results in $523 per functional resident

for fire rescue services and $40 per functional resident for EMS. The difference in these cost

levels is due to a combination of higher asset value and lower service area population in the case

of fire rescue services compared to EMS.

Table II-6

Total Impact Cost per Functional Resident

1) Source: Table II-1 2) Source: Table II-1 3) Source: Table II-2 4) Sum of building value (Item 1), land value (Item 2), and vehicle/equipment value (Item 3) 5) Source: Table II-1 6) Net asset value (Item 4) divided by the number of owned stations (Item 5) 7) Source: Table II-3 8) Net asset value per station (Item 6) multiplied by the current LOS (Item 7) divided by 1,000 9) Distribution of total asset value

Credit Component

To avoid overcharging new development, a review of the capital funding allocation for fire rescue

and EMS services is completed. The purpose of this review is to determine any potential

revenues generated by future development that is likely to be used for capital facilities, land,

vehicle, and equipment expansion of the fire rescue and EMS programs. Revenue credits are

Variable Fire RescuePercent of

Total(9) EMSPercent of

Total(9)

Building Value(1) $7,360,500 49% $1,237,200 28%

Land Value(2) $316,400 2% $36,400 1%

Vehicle & Equipment Value(3) $7,500,000 49% $3,102,000 71%

Total Asset Value(4) $15,176,900 100% $4,375,600 100%

Number of Owned Stations(5) 7 4

Net Asset Value per Station(6) $2,168,129 $1,093,900

Future LOS (Stations per 1,000 Functional Residents)(7) 0.241 0.037

Total Impact Cost per Functional Resident(8) $522.52 $40.47


then applied against the total impact cost per functional resident so that new development is not

charged twice for capital revenue contributions used to expand the fire rescue and EMS services.

This review indicated that the County does not have any funding available for fire rescue and

EMS capacity projects and will rely solely on impact fee revenues for these improvements.

However, a 10-percent credit is included in the calculations to use a conservative approach and

provide the County with the flexibility of using some level of alternative funding for fire rescue

and EMS capacity projects. The resulting credit is $52.25 per population for fire rescue and $4.05

per population for EMS facilities. If, in the future, the County starts allocating a larger amount of

non-impact fee funding toward these facilities, the credit calculations should be revised.

After applying this credit, net cost per population is $470.27 for fire rescue and $36.42 per EMS

facilities, which are used to calculate the impact fee rates.

Calculated Fire Rescue & EMS Impact Fee Schedules

Table II-7 presents the calculated fire rescue and EMS impact fee schedules for Flagler County for

both residential and non-residential land uses, based on the net impact cost per functional

resident previously presented.

Table II-7


Functional

Resident

Coefficient(1)

Calculated

Impact Fee(2)

Functional

Resident

Coefficient(1)

Calculated

Impact Fee(2)

Residential:

Less than 1,500 sq ft du 1.40 $658 1.50 $55

1,500 to 2,499 sq ft du 1.55 $729 1.67 $61

2,500 sq ft or greater du 1.74 $818 1.87 $68

220/221/222 Multi-Family (Apartment/Condominium) du 0.55 $259 0.85 $31

240 Mobile Home du 1.34 $630 1.20 $44

Transient, Assisted, Group:

253 Congregate Care Facility du 1.26 $593 1.49 $54

310 Hotel room 0.99 $466 0.99 $36

320 Motel room 0.82 $386 0.82 $30

620 Nursing Home bed 1.15 $541 1.15 $42

Recreational:

411 Public Park acre 0.05 $24 0.05 $2

416 RV Park site 0.47 $221 0.47 $17

420 Marina berth 0.13 $61 0.13 $5

430 Golf Course hole 0.84 $395 0.84 $31

444 Movie Theater screen 5.19 $2,441 5.19 $189

492 Health/Fitness Club 1,000 sf 2.41 $1,133 2.41 $88

EMS

210

Single Family (Detached):


ITE LUC Land UseImpact

Unit


Table II-7 (Continued)


1) Source: Appendix A, Table A-15 or residential and transient, assisted, group land uses and Table A-17 for non-

residential land uses 2) Net impact cost per functional resident of $470.27 for fire rescue and $36.42 for EMS multiplied by the functional

resident coefficient (Item 1) for each land use

Impact Fee Schedule Comparison

As part of the work effort in developing the Flagler County fire rescue and EMS impact fee

schedules, the County’s calculated impact fee schedules were compared to the adopted fee

schedules of other select Florida counties. Tables II-8 and II-9 present this comparison.

Functional

Resident

Coefficient(1)

Calculated

Impact Fee(2)

Functional

Resident

Coefficient(1)

Calculated

Impact Fee(2)

Institutional:

520 Elementary School (Private) student 0.08 $38 0.08 $3

522 Middle/Jr High School (Private) student 0.09 $42 0.09 $3

530 High School (Private) student 0.09 $42 0.09 $3

540 University/Jr College (7,500 or fewer students)(Private) student 0.10 $47 0.10 $4

550 University/Jr College (more than 7,500 students)(Private) student 0.08 $38 0.08 $3

560 Church 1,000 sf 0.37 $174 0.37 $13

565 Day Care Center 1,000 sf 0.81 $381 0.81 $30

Medical:

610 Hospital 1,000 sf 1.29 $607 1.29 $47

Office:

710 Office 1,000 sf 0.89 $419 0.89 $32

714 Corporate Headquarters Building 1,000 sf 0.97 $456 0.97 $35

720 Medical Office 10,000 sq ft or less 1,000 sf 1.20 $564 1.20 $44

720 Medical Office greater than 10,000 sq ft 1,000 sf 1.72 $809 1.72 $63

Retail:

820 Retail/Shopping Center 1,000 sfgla 1.51 $710 1.51 $55

840/841 New/Used Auto Sales 1,000 sf 1.57 $738 1.57 $57

849 Tire Superstore bay 2.12 $997 2.12 $77

850 Supermarket 1,000 sf 2.41 $1,133 2.41 $88

851 Convenience Market - 24 hrs 1,000 sf 6.39 $3,005 6.39 $233

862 Home Improvement Superstore 1,000 sf 1.94 $912 1.94 $71

880/881 Pharmacy/Drug Store with or w/o Drive-Thru 1,000 sf 1.85 $870 1.85 $67

890 Furniture Store 1,000 sf 0.32 $150 0.32 $12

Services:

911 Bank/Savings Walk-In 1,000 sf 1.03 $484 1.03 $38

912 Bank/Savings w/Drive-In 1,000 sf 1.49 $701 1.49 $54

931 Quality Restaurant 1,000 sf 5.76 $2,709 5.76 $210

932 High-Turnover (Sit-Down) Restaurant 1,000 sf 5.57 $2,619 5.57 $203

934 Fast Food Restarurant w/Drive-Thru 1,000 sf 9.70 $4,562 9.70 $353

941 Quick Lubrication Vehicle Shop bay 1.60 $752 1.60 $58

942 Automobile Care Center 1,000 sf 1.67 $785 1.67 $61

944 Gas Station w/Convenience Market <2,000 sq ft fuel pos. 1.46 $687 1.46 $53

945 Gas Station w/Convenience Market 2,000-2,999 sq ft fuel pos. 1.78 $837 1.78 $65

960 Gas Station w/Convenience Market 3,000+ sq ft fuel pos. 2.02 $950 2.02 $74

n/a Gasoline/Convenience w/Fast Food 1,000 sf 7.97 $3,748 7.97 $290

Industrial:

110 General Light Industrial 1,000 sf 0.50 $235 0.50 $18

130 Industrial Park 1,000 sf 0.35 $165 0.35 $13

140 Manufacturing 1,000 sf 0.46 $216 0.46 $17

150 Warehouse 1,000 sf 0.11 $52 0.11 $4

151 Mini-Warehouse 1,000 sf 0.04 $19 0.04 $1

EMSFire Rescue Services


Unit


Table II-8

Fire/Rescue Impact Fee Schedule Comparison

1) Represents the portion of the maximum calculated fee for each respective county that is actually charged. Fee may have been lowered/increased through

annual indexing or policy discounts. Does not account for moratorium/suspensions. 2) du = dwelling unit 3) Source: Table II-7 4) Source: Volusia County Growth and Resource Management Department 5) Source: St. Johns County Resolution No. 2018-16. No EMS Fee. Residential fees adopted at 100% and non-residential fees reflect a 40% reduction from

maximum calculated. 6) Source: Seminole County Development Services 7) Source: Lake County Planning and Zoning Office 8) Source: City of Palm Coast Community Development Department

Land Use Unit(2) Flagler County

Calculated(3)

Volusia

County(4)

St. Johns

County(5)

Seminole

County(6)

Lake

County(7)

City of Palm

Coast(8)

Date of Last Update 2020 N/A 2018 1992 2003 2020

Adoption percentage(1)N/A N/A 100%/60% 84% 95% 100%

Residential:

Single Family (2,000 sf) du $729 $294 $618 $172 $390 $367

Non-Residential:

Light Industrial 1,000 sf $235 $150 $15 $13 $104 $590

Office (50,000 sq ft) 1,000 sf $419 $150 $182 $72 $1,301 $590

Retail (125,000 sq ft) 1,000 sf $710 $150 $104 $160 $1,301 $590

Bank w/Drive-Thru 1,000 sf $701 $150 $39 $72 $1,301 $590

Fast Food w/Drive-Thru 1,000 sf $4,562 $150 $90 $320 $1,301 $590


Table II-9

EMS Impact Fee Schedule Comparison


annual indexing or policy discounts. Does not account for moratorium/suspensions. 2) du = dwelling unit 3) Source: Table II-6 4) Source: Charlotte County Planning & Zoning Department 5) Source: Collier County Capital Project Planning, Impact Fees and Program Management Division 6) Source: Lee County Community Development Department 7) Source: Polk County Building Division 8) Source: Sarasota County Planning and Development Services Department


Calculated(3)

Charlotte

County(4)

Collier

County(5)

Lee

County(6)

Polk

County(7)

Sarasota

County(8)

Date of Last Update 2020 2014 2016 2018 2019 2016

Adoption percentage(1)N/A 100% 100% 100% 100% 100%

Residential:


Non-Residential:


Office (50,000 sq ft) 1,000 sf $32 $57 $93 $29 $49 $129

Retail (125,000 sq ft) 1,000 sfgla $55 $119 $192 $59 $78 $224

Bank w/Drive-Thru 1,000 sf $54 $86 $179 $59 $78 $224

Fast Food w/Drive-Thru 1,000 sf $353 $294 $699 $59 $78 $224


III. Law Enforcement Facilities

This section discusses the analysis used in developing the law enforcement impact fee. Several

elements addressed in this section include:




• Cost Component

• Credit Component

• Net Law Enforcement Impact Cost

• Calculated Law Enforcement Impact Fee Schedule

• Law Enforcement Impact Fee Schedule Comparison

These elements are summarized throughout this section.

Facility Inventory

The facility inventory for the County’s law enforcement services includes land, buildings, vehicles

and equipment. According to information provided by the Flagler County, law enforcement

building and land related capital assets include approximately 61,800 square feet of building

space and approximately 15 acres of land. The inventory includes the New Operations Center

since it is funded through a Capital Improvement Revenue Note that is recently approved by the

Board of County Commission. Table III-1 presents this information.

Cost estimate for buildings is based on recent and upcoming construction and information

obtained from other Florida jurisdictions for similar facilities. Land values are based on a review

of recent purchases, current value of land where existing facilities are located based on

information obtained from the Flagler County Property Appraiser as well as vacant land sales and

values of similarly sized and located parcels.

Based on this data and analysis, building values are estimated at $300 per square foot for the

new Operations Center and $250 per square foot for substations, and the land value is estimated

at $65,000 per acre. These cost estimates result in a total building and land value of

approximately $18.9 million, of which $17.9 million is for buildings and the remaining $954,000

is for land. A more detailed explanation of building and land value estimates is included in

Appendix B.


Table III-1

Law Enforcement Building and Land Inventory

1) Source: Flagler County 2) Source: Flagler County 3) Source: Flagler County 4) Source: Flagler County 5) Square feet (Item 3) divided by total square footage on site (Item 4) multiplied by the number of acres (Item 2) 6) Estimated building value per square foot of $300 for the new Operations Center and $250 for substations and Training/Evidence Storage Building multiplied

by building square feet (Item 3). See Appendix B for additional detail on building value estimates. 7) Number of acres (Item 2) multiplied by the estimated land value per acre (Item 11) 8) Sum of building and land value (Items 6 and 7) 9) Located on the same parcel as Hammock Community Center, acreage included in the parks inventory 10) Total building value (Item 6) divided by square footage (Item 3) 11) Source: Appendix B

Description(1) Address(1)Total

Acres(2)

Square

Feet(3)

Total Square

Footage on

Site(4)

Allocated

Acreage(5)

Building

Value(6)

Land

Value(7)

Total Building

and Land

Value(8)

New Operations Center 2011 Commerce Parkway, Bunnell 8.41 50,000 50,000 8.41 $15,000,000 $546,650 $15,546,650

Hammock Sub-Station(9) 69 Malacompra Road, Palm Coast N/A 3,221 6,581 N/A $805,250 N/A $805,250

Training Building/Evidence Storage Justice Lane, Bunnell 80.52 4,000 61,117 5.27 $1,000,000 $342,550 $1,342,550

Palm Coast Sub-Station 14 Palm Harbor Village Way, Palm Coast 1.00 4,533 4,533 1.00 $1,133,250 $65,000 $1,198,250

Total 61,754 14.68 $17,938,500 $954,200 $18,892,700

Building Value per Square Foot(10)

$290

Land Value per Acre(11)

$65,000


In addition to land and buildings, the Flagler County law enforcement impact fee inventory

includes the necessary vehicles and equipment required to perform law enforcement services.

As presented in Table III-2, the total vehicle and equipment value is approximately $14.9 million.

Table III-2

Law Enforcement Equipment and Vehicle Inventory

1) Source: Source: Flagler County 2) Source: Flagler County. Unit cost includes both the cost of the vehicle and

necessary equipment. 3) Unit count (Item 1) multiplied by the vehicle/equipment unit value (Item 2)


Flagler County provides law enforcement services to the unincorporated areas of the county and

the cities of Beverly Beach and Marineland. In addition, the City of Palm Coast has an agreement

with the Sheriff for enhanced security for an annual fee. Given this, the proper benefit district

for law enforcement capital facilities is the unincorporated county and the Cities of Beverly

Beach, Marineland and Palm Coast. In this technical study, the current 2020 weighted and

functional population estimates are used. Because simply using weighted (permanent, plus

weighted seasonal) population estimates does not fully address daily workers and visitors who

also benefit from law enforcement services, the “functional” weekly 24-hour population

approach is used to establish a common unit of demand across different land uses. Functional

population accounts for residents, visitors, and workers traveling in and out of the service area

throughout the day and calculates the presence of population at the different land uses during

the day, which represents the demand component of the impact fee equation. Appendix A

provides further detail on the population analysis conducted.

Level of Service

Based on sworn officer counts provided by the Flagler County Sheriff’s Office, as well as,

population estimates produced in Appendix A, the 2020 current level of service (LOS) is calculated

DescriptionUnit

Count(1)

Vehicle/

Equipment

Unit Value(2)Total(3)

Law Enforcement Vehicle 225 $60,000 $13,500,000

Law Enforcement Motorcycle 6 $38,300 $229,800

Mobile Command 1 $428,000 $428,000

Armored Rescue 3 $257,200 $771,600

Total 235 $14,929,400


at 1.55 sworn officers per 1,000 weighted seasonal residents. Table III-3 presents the calculation

of the current achieved LOS.

While the 2020 LOS is 1.54 sworn officers per 1,000 weighted seasonal residents, to calculate the

law enforcement impact fee, the LOS needs to be calculated in terms functional residents. As

shown, the current LOS of law enforcement services is 1.78 sworn officers per 1,000 functional

residents which is utilized in calculating the law enforcement impact fee for Flagler County.

Impact fee calculations assume that the County will continue to provide this level of service going

forward.

Table III-3


1) Source: Appendix A, Table A-1 for weighted population and Appendix A, Table A-13

for functional population 2) Source: Flagler County 3) Number of sworn officers (Item 2) divided by population (Item 1) multiplied by 1,000

Table III-4 summarizes a LOS comparison between Flagler County and other Florida counties. The

LOS is displayed in terms of permanent population for all jurisdictions because a functional

population analysis has not been completed for these entities. In addition, the LOS comparison

is based on the permanent population for 2019, as this is when the most recent data on officer

counts is available for all jurisdictions. As presented in this table, Flagler County’s LOS is in the

mid-range of the communities reviewed.

Weighted

Population

Functional

Population

Population(1) 111,367 96,618

Number of Sworn Officers(2)172 172

LOS (Officers per 1,000 Residents)(3) 1.54 1.78

Variable

Year 2020


Table III-4

Level of Service Comparison (2019)

1) Source: Florida Department of Law Enforcement (FDLE) Criminal Justice Agency

Profile Report, 2019 2) Source: FDLE Criminal Justice Agency Profile Report, 2019 3) Number of officers (Item 2) divided by the service area population (Item 1)

multiplied by 1,000

Cost Component

The cost component of the study evaluates the cost of all capital assets, including buildings, land

and equipment/vehicles. Table III-5 provides a summary of all capital costs, which amounts to

approximately $33.8 million or $196,640 per sworn officer.

In addition, Table III-5 also provides the impact cost per functional resident, which is calculated

by multiplying the net asset value per sworn officer of $196,640 by the current achieved LOS

(sworn officers per 1,000 functional residents) of 1.78 and dividing by 1,000. As shown, this

calculation amounts to $350 per functional resident.

Jurisdiction

Service Area

Population

(2019)(1)

Number of

Officers(2)

LOS (Officers

per 1,000

Residents)(3)

Marion County 291,789 455 1.56

St. Johns County 233,010 381 1.64

Volusia County 234,744 423 1.80

Lake County 180,520 335 1.86

Flagler County 102,645 192 1.87

Putnam County 58,895 139 2.36

Seminole County 224,258 572 2.55


Table III-5

Total Impact per Functional Resident

1) Source: Table III-1 2) Source: Table III-1 3) Source: Table III-2 4) Sum of building value (Item 1), land value (Item 2), and vehicle/equipment value (Item 3) 5) Source: Table III-3 6) Total asset value (Item 4) divided by the number of sworn officers (Item 5) 7) Source: Table III-3 8) Total asset value per sworn officer (Item 6) multiplied by the LOS (Item 7) divided by 1,000 9) Distribution of total asset value

Credit Component

To avoid overcharging new development, a review of the capital funding allocation for law

enforcement services is completed. The purpose of this review is to determine any potential

revenue generated by future development that is likely to be used for capital facilities, land,

vehicle, and equipment expansion of the law enforcement program. Revenue credits are then

applied against the total impact cost per functional resident so that new development is not

charged twice for capital revenue contributions used to expand the law enforcement program.

Capital Expansion Credit

To calculate the capital expansion credit per functional resident, funding sources used for

historical capacity projects and those programmed in the CIP are reviewed. Over the past five

years, the County has allocated an average annual non-impact fee funding of $378,100 toward

law enforcement capital facilities utilizing revenue from the Infrastructure Sales Tax and the

General Fund. The annual capital expansion expenditures were divided by the average annual

functional residents for the same period to calculate the average annual capital expansion credit

Variable FigurePercent

of Total(9)

Building Value(1)

$17,938,500 53%

Land Value(2) $954,200 3%

Vehicle & Equipment Value(3) $14,929,400 44%

Total Asset Value(4) $33,822,100 100%

Number of Sworn Officers(5) 172

Total Asset Value per Sworn Officer(6) $196,640

Current LOS (Sworn Officers per 1,000 Functional Residents) (7) 1.78

Total Impact Cost per Functional Resident(8) $350.02


per functional resident. As presented in Table III-6, the result is $4 per functional resident per

year.

Once the revenue credit per population is calculated, a credit adjustment is needed for the

portion of the revenue credit funded with ad valorem tax revenues, which is approximately 57

percent of the cash funding. This adjustment accounts for the fact that new homes tend to pay

higher property taxes per dwelling unit than older homes and was estimated based on a

comparison of the average taxable value of newer homes to that of all homes. As presented, the

adjusted revenue credit per population amounts to $5 per year and is used to calculate total

credit for residential land uses.

Table III-6


1) Source: Flagler County 2) Source: Average annual capital expansion expenditures over the 5‐year period 3) Source: Appendix A, Table A-13 4) Average annual capital expansion expenditures (Item 2) divided by average annual functional population (Item 3) 5) Portion of total capital expansion expenditures funded by ad valorem tax revenue (57%) based on ad valorem

revenues generating approximately 81% of General Fund revenues. 6) Capital expansion credit per functional resident (Item 4) less portion funded with ad valorem tax revenue (Item 5) 7) Adjustment factor to reflect higher ad valorem taxes paid by new homes 8) Portion funded with ad valorem tax revenue (Item 5) multiplied by the credit adjustment factor (Item 7) 9) Sum of the adjusted capital expansion credit per functional resident (Item 8) and the portion funded with other

sources (Item 6)

Description(1) 2016-2020

General Fund

Palm Coast Substation $897,497

FCSO Evidence Storage Building $413,132

FCSO Training Building $29,737

Subtotal - General Fund $1,340,366

Half-Cent Infrastructure Sales Tax

Land Purchase for New Operations Building $550,173

Total Capital Expansion Expenditures $1,890,539

Average Annual Capital Expansion Expenditures(2) $378,108

Average Annual Functional Population(3)

91,488

Capital Expansion Credit per Functional Resident(4)

$4.13

- Portion Funded with Ad Valorem Tax Revenue(5)

$2.37

- Portion Funded with Other Sources(6) $1.76

Credit Adjustment Factor (Residential Land Uses) (7) 1.40

Adjusted Capital Expansion Credit per Functional Resident (Residential Land Uses) (8) $3.32

Total Capital Expansion Credit per Functional Resident (Residential Land Uses) (9) $5.08


Debt Service Credit

Any outstanding bond issues related to the law enforcement also will result in a credit to the

impact fee. Flagler County used bond/note proceeds for purchase of vehicles. In addition, the

Board of County Commissioners recently approved the issuance of a Capital Improvements

Revenue Note to fund the construction of the new Operations Center. The remaining debt

service payments are divided by the population during the same period to determine the debt

service credit per resident. Table III-7 presents these calculations.

Table III-7

Debt Service Credit Per Resident

1) Source: Flagler County - number of payments reflect monthly payments for CenterState 1, CenterState 2, and

SunTrust, and annual payments for Series 2020 Note 2) Present value of remaining payments in 2020 dollars, adjusted to reflect capacity expansion portion 3) Source: Appendix A, Table A-13. Average annual functional population over remaining number of payments. 4) Present value of remaining payments (Item 2) divided by the average annual weighted population (Item 3)

Net Law Enforcement Impact Cost

The net impact cost per resident is the difference between the Cost Component and the Credit

Component. Table III-8 summarizes the calculation of the net impact cost that amounts to

approximately $124 per resident for residential land uses and $141 for non-residential land uses.

Description(1)

Funding

Source(1)

Number of

Remaining

Payments(1)

Present Value of

Remaining

Payments(2)

Average Annual

Functional

Population(3)

Credit per

Functional

Resident(4)

CenterState 1 (Vehicles) General Fund 2 $33,774 99,683 $0.34

CenterState 2 (Vehicles) General Fund 4 $104,014 101,799 $1.02

SunTrust (Vehicles) General Fund 3 $73,133 100,733 $0.73

Capital Improvements Revenue

Note, Series 2020 (New

Operations Center)

Non-Ad Valorem

Revenues15 $14,722,776 112,741 $130.59

$132.68Total


Table III-8

Net Impact Cost per Resident

1) Source: Table III-5 2) Source: Table III-6 3) Present Value of annual credit per resident (Item 2) over a 25‐year period with a capitalization

rate of 2.5%. Interest rate provided by Flagler County. 4) Source: Table III-7 5) Sum of total capital expenditure credit per functional resident (Item 3) and total debt service

credit per functional resident (Item 4) 6) Total impact cost per functional resident (Item 1) less total revenue credit per functional resident

(Item 5)

Calculated Law Enforcement Impact Fee Schedule

Table III-9 presents the calculated law enforcement impact fee schedule for Flagler County for

both residential and non-residential land uses, based on the net impact cost per functional

resident previously presented in Table III-8.

Variable Impact CostRevenue

Credits

Impact Cost

Total Impact Cost per Functional Resident(1) $350.02

Revenue Credit

Average Annual Capital Expenditure Credit per Functional Resident (2)

- Residential Land Uses $5.08

- Non-Residential Land Uses $4.13

Capitalization Rate 2.50%

Capitalization Period (in years) 25

Total Capital Expenditure Credit per Functional Resident(3)



Debt Service Credit per Functional Resident(4)

- Residential & Non-Residential Land Uses $132.68

Total Revenue Credit per Functional Resident(5)



Net Impact Cost

Net Impact Cost per Functional Resident(6)




Table III-9

Flagler County Law Enforcement Fee Schedule


Unit

Functional

Resident

Coefficient(1)

Calculated

Impact Fee(2)

Residential:

Less than 1,500 sq ft du 1.54 $191

1,500 to 2,499 sq ft du 1.71 $212

2,500 sq ft or greater du 1.91 $236

220/221/222 Multi-Family (Apartment/Condominium) du 0.87 $108

240 Mobile Home du 1.20 $148


253 Congregate Care Facility du 1.53 $216

310 Hotel room 0.99 $140

320 Motel room 0.82 $116

620 Nursing Home bed 1.15 $162

Recreational:

411 Public Park acre 0.05 $7

416 RV Park site 0.47 $66

420 Marina berth 0.13 $18

430 Golf Course hole 0.84 $119

444 Movie Theater screen 5.19 $733

492 Health/Fitness Club 1,000 sf 2.41 $340

Institutional:

520 Elementary School (Private) student 0.08 $11

522 Middle/Jr High School (Private) student 0.09 $13

530 High School (Private) student 0.09 $13

540 University/Jr College (7,500 or fewer students)(Private) student 0.10 $14

550 University/Jr College (more than 7,500 students)(Private) student 0.08 $11

560 Church 1,000 sf 0.37 $52

565 Day Care Center 1,000 sf 0.81 $114

Medical:

610 Hospital 1,000 sf 1.29 $182

Office:

710 Office 1,000 sf 0.89 $126

714 Corporate Headquarters Building 1,000 sf 0.97 $137

720 Medical Office 10,000 sq ft or less 1,000 sf 1.20 $170

720 Medical Office greater than 10,000 sq ft 1,000 sf 1.72 $243

Retail:

820 Retail/Shopping Center 1,000 sfgla 1.51 $213

840/841 New/Used Auto Sales 1,000 sf 1.57 $222

849 Tire Superstore bay 2.12 $299

850 Supermarket 1,000 sf 2.41 $340

851 Convenience Market - 24 hrs 1,000 sf 6.39 $903

862 Home Improvement Superstore 1,000 sf 1.94 $274

880/881 Pharmacy/Drug Store with or w/o Drive-Thru 1,000 sf 1.85 $261

890 Furniture Store 1,000 sf 0.32 $45

210



Table III-9 (Continued)

Flagler County Law Enforcement Fee Schedule

1) Source: Appendix A, Table A-16 for residential and transient, assisted, group land uses and Table A-17 for non-

residential land uses 2) Net impact cost per functional resident from Table III-8 multiplied by the functional resident coefficient (Item 1)

for each land use


As part of the work effort in updating Flagler County’s law enforcement impact fee schedule, the

County’s calculated impact fees for select land uses were compared to the adopted fee schedules

of several Florida counties. Table III-10 presents this comparison.


Unit

Functional

Resident

Coefficient(1)

Calculated

Impact Fee(2)

Services:

911 Bank/Savings Walk-In 1,000 sf 1.03 $145

912 Bank/Savings w/Drive-In 1,000 sf 1.49 $210

931 Quality Restaurant 1,000 sf 5.76 $814

932 High-Turnover (Sit-Down) Restaurant 1,000 sf 5.57 $787

934 Fast Food Restarurant w/Drive-Thru 1,000 sf 9.70 $1,370

941 Quick Lubrication Vehicle Shop bay 1.60 $226

942 Automobile Care Center 1,000 sf 1.67 $236

944 Gas Station w/Convenience Market <2,000 sq ft fuel pos. 1.46 $206

945 Gas Station w/Convenience Market 2,000-2,999 sq ft fuel pos. 1.78 $251

960 Gas Station w/Convenience Market 3,000+ sq ft fuel pos. 2.02 $285

n/a Gasoline/Convenience w/Fast Food 1,000 sf 7.97 $1,126

Industrial:

110 General Light Industrial 1,000 sf 0.50 $71

130 Industrial Park 1,000 sf 0.35 $49

140 Manufacturing 1,000 sf 0.46 $65

150 Warehouse 1,000 sf 0.11 $16

151 Mini-Warehouse 1,000 sf 0.04 $6


Table III-10

Law Enforcement Impact Fee Schedule Comparison

1) Represents the portion of the maximum calculated fee for each respective county that is actually charged. Fee may have been lowered/increased

through annual indexing or policy discounts. Does not account for moratorium/suspensions. 2) du = dwelling unit 3) Source: Table III- 9 4) Source: Source: St. Johns County Resolution No. 2018-16. Residential fees adopted at 100% and non-residential fees, adjusted and indexed, reflect a

40% reduction from maximum calculated. 5) Source: Charlotte County Planning & Zoning Department. Law Enforcement/Correctional Facilities impact fee shown. Originally adopted at 40% and

adjusted annually according to future needs. All fees include a 2.46% administrative fee. 6) Source: Collier County Capital Project Planning, Impact Fees, and Program Management Division 7) Source: Polk County Building Division 8) Source: Sarasota County Planning and Development Services Department


Calculated(3)

St. Johns

County(4)

Charlotte

County(5)

Collier

County(6)

Polk

County(7)

Sarasota

County(8)

Date of Last Update 2021 2018 2014 2016 2019 2016

Assessed Portion of Calculated(1) 100% 100%/60% 100% 100% 100% 100%

Residential:


Non-Residential:


Office (50,000 sq ft) 1,000 sf $126 $283 $427 $372 $181 $211

Retail (125,000 sq ft) 1,000 sfgla $213 $545 $892 $765 $289 $368

Bank w/Drive-Thru 1,000 sf $210 $202 $642 $712 $289 $368

Fast Food w/Drive-Thru 1,000 sf $1,370 $473 $2,197 $2,779 $289 $368


IV. Public Buildings

This section discusses the analysis used in developing the public buildings impact fee. Several





• Cost Component


• Net Public Buildings Impact Cost

• Calculated Public Buildings Impact Fee Schedule



Facility Inventory

Flagler County owns and operates 419,500 square feet of public facilities on 115 acres throughout

the county.

As shown in Table IV-1, the total value of the public buildings is estimated at $130.7 million, of

which $123.3 million is associated with buildings and the remaining $7.5 million with land. The

building value is estimated at $300 per square foot for buildings and $100,000 for each tower

site. These unit figures are based on insurance values of existing facilities, cost estimates

obtained from other Florida jurisdictions and discussions with the representatives from Flagler

County. Land values are based on the current value of land where existing facilities are located

as well as vacant land sales and values of similarly sized and located parcels. Land value for public

buildings is estimated at $65,000 per acre. Appendix B provides additional information.


Table IV-1

Public Facilities Building and Land Inventory

1) Source: Flagler County 2) Square feet (Item 3) divided by total square footage on site (Item 4) multiplied by the number of acres (Item 2) 3) Estimated building value of $300 per square foot multiplied by building square feet (Item 3) and $100,000 per tower 4) Number of acres (Item 2) multiplied by the estimated land value per acre (Item 13) 5) Sum of building and land value (Items 6 and 7) 6) Condo units, no associated acreage 7) Located on the County landfill 8) Land owned by Town of Marineland 9) Total building value (Item 6) divided by total square feet (Item 3) 10) Source: Appendix B

Description(1)

Address(1) Number of

Acres(1) Square Feet

(1) Total Square

Footage on Site(1)

Allocated

Acreage(2) Building Value

(3)Land Value

(4) Total Building

and Land Value(5)

Community Services - David Siegel Center 1000 Belle Terre Blvd #B, Palm Coast 3,947 $1,184,100

Community Services - Main Office 1000 Belle Terre Blvd #A, Palm Coast 4,756 $1,426,800

Government Complex - Employee Health Clinic 1769 E Moody Blvd #4, Bunnell 2,581 $774,300

Government Complex - Energy Plant 1769 E Moody, Blvd #6, Bunnell 4,350 $1,305,000

Government Complex - Fleet Shop 1769 E Moody Blvd #9, Bunnell 14,000 $4,200,000

Government Complex - Fuel Farm 1769 E Moody Blvd #10, Bunnell 990 $297,000

Government Complex - General Services Main Office 1769 E Moody Blvd #5, Bunnell 6,261 $1,878,300

Government Complex - EOC 1769 E Moody Blvd #3, Bunnell 25,372 $7,611,600

Government Complex - Vehicle Storage Bldg 1769 E Moody Blvd #8, Bunnell 5,300 $1,590,000

Government Complex - Government Services Building 1769 E Moody Blvd #2, Bunnell 121,101 $36,330,300

Government Complex - Kim C. Hammond Justice Center 1769 E Moody Blvd #1, Bunnell 136,492 $40,947,600

Government Complex - Maintenance Shops 1769 E Moody Blvd #11, Bunnell 8,750 $2,625,000

Health Department - Diabetes(6)

206 Doctor Carter Blvd, Bunnell N/A 1,242 N/A $372,600 N/A $372,600

Health Department - Environmental Health(6)


Health Department - Vital Statistics(6)


Health Department - Main Office 301 Doctor Carter Blvd, Bunnell 4.59 12,386 12,386 4.59 $3,715,800 $298,350 $4,014,150

Landfill - Main Office(7) 1700 Old Kings Road S, Flagler Beach N/A 672 672 N/A $201,600 N/A $201,600

Miscellaneous - Bulow House 3333 Old Kings Road, Palm Coast 3.00 1,112 1,112 3.00 $333,600 $195,000 $528,600

Miscellaneous - GTMNERR(8)

9741 N Oceanshore Blvd, Palm Coast N/A 2,508 2,508 N/A $752,400 N/A $752,400

Miscellaneous - Historic Courthouse/Baptist School 208 Moody Blvd, Bunnell 1.35 51,112 51,112 1.35 $15,333,600 $87,750 $15,421,350

Miscellaneous - Holden House 206 E. Moody Blvd, Bunnell 1,369 $410,700

Miscellaneous - Holden House Annex 206 E Moody Blvd, Bunnell 1,116 $334,800

Miscellaneous ‐ Sally’s Safe Haven 107 E Moody Blvd, Bunnell 0.32 1,647 4,943 0.11 $494,100 $7,150 $501,250

E-911 Radio - Tower Site Cody’s Corner N/A 2,500 2,500 N/A $100,000 N/A $100,000

E-911 Radio - Tower Site Espanola N/A 2,500 2,500 N/A $100,000 N/A $100,000

E-911 Radio - Tower Site John Anderson Road N/A 2,500 2,500 N/A $100,000 N/A $100,000

E-911 Radio - Tower Site Old Kings Road N/A 2,500 2,500 N/A $100,000 N/A $100,000

Total 115.37 419,533 - 115.16 $123,259,900 $7,485,400 $130,745,300

Building Value per Sq. Ft.(9)

$294

Land Value per Acre(10)$65,000

5.00

0.49

100.62

5.00

0.49

8,703

325,197

3,711

2,485

100.62

$325,000

$6,540,300

$31,850

$2,935,900

$104,099,400

$777,350



Flagler County provides public buildings throughout all of Flagler County. As such, the proper

benefit district is countywide. In this technical study, the current 2020 weighted and functional

population estimates are used. Because simply using weighted (permanent, plus weighted

seasonal) population estimates does not fully address daily workers and visitors who also benefit

from general government services, the “functional” weekly 24-hour population approach is used

to establish a common unit of demand across different land uses. Functional population accounts

for residents, visitors, and workers traveling in and out of the service area throughout the day

and calculates the presence of population at the different land uses during the day, which

represents the demand component of the impact fee equation. Appendix A provides further

detail on the population analysis conducted.

Level of Service

Table IV-2 provides the current achieved LOS for public buildings in terms of square feet per

resident. The LOS is provided both in terms of weighted seasonal population and functional

population. Impact fee calculations assume that the County will continue to provide this level of

service in the future.

Table IV-2

Current Level of Service (2020) & Comparison

1) Source: Appendix A, Tables A-1 and A-13 2) Source: Table IV-1 3) Total square footage (Item 2) divided by population (Item 1)

Cost Component

The cost component of the study evaluates the cost of capital items, including buildings, land,

and materials. Table IV-3 provides a summary of all capital costs, which amounts to

approximately $130.7 million.

Weighted

Population

Functional

Population

Population(1) 120,183 107,519

Public Buildings Square Footage(2)

419,533 419,533

Current LOS (Square Feet per Resident)(3) 3.49 3.90

Variable

2020


Table IV-3 also presents the cost per resident for the impact fee analysis. This cost is calculated

by multiplying the total building and land value per square foot by the current LOS of 3.90 square

feet per resident. As shown, these calculations result in $1,215 per resident for public buildings

capital assets.

Table IV-3

Total Impact Cost per Resident

1) Source: Table IV-1 2) Source: Table IV-1 3) Sum of building value (Item 1) and land value (Item 2) 4) Source: Table IV-1 5) Total asset value (Item 3) divided by building square footage (Item 4) 6) Source: Table IV-2 7) Total cost per square foot (Item 5) multiplied by the current LOS (Item 6) 8) Distribution of total asset value (Item 3)

Credit Component

To avoid overcharging new development, a review of funding for public buildings capital

expansion projects over the past five years and those programmed for the next five years was

completed. The purpose of this review was to determine any potential revenues generated by

new development, other than impact fees, that are being used or will be used to fund the

expansion of capital facilities for the County’s public buildings program. This review suggested

that the only funding allocated for public buildings capacity projects related to the outstanding

debt service associated with the Judicial Center. As mentioned previously, the credit component

does not include any capital renovation, maintenance, or operations expenses, as these types of

expenditures do not add capacity and should not be considered for impact fee credit.

Variable FigurePercent of

Total(8)

Total Building Value(1)

$123,259,900 94%

Total Land Value(2)

$7,485,400 6%

Total Asset Value(3) $130,745,300 100%

Total Building Square Footage(4)

419,533

Total Asset Value per Square Foot(5)

$311.64

Current LOS (Square Feet per Resident)(6)

3.90

Total Impact Cost per Functional Resident(7) $1,215.40


Debt Service Credit

Any outstanding bond issues related to the public buildings will result in a credit to the impact

fee. Flagler County used bond proceeds for the construction of the Judicial Center. The

remaining debt service payments are divided by the population during the same period to

determine the debt service credit per resident. Table IV-4 presents these calculations. Because

ad valorem taxes were used to pay the debt service, an adjustment was made to reflect higher

property taxes paid by residential land uses. The resulting debt service credit is $231 per resident

for residential land uses and $165 per resident for non-residential land uses.

Table IV-4

Debt Service Credit per Resident

1) Source: Flagler County 2) Present value of remaining payments in 2020 dollars 3) Source: Appendix A, Table A-13. Average annual functional population over remaining number of payments. 4) Present value of remaining payments (Item 2) divided by the average annual functional population (Item 3) 5) Adjustment factor to reflect higher ad valorem taxes paid by new homes 6) Credit per resident (Item 4) multiplied by the credit adjustment factor (Item 5)

Net Public Buildings Impact Cost

The net public buildings impact cost per resident is the difference between the cost component

and the credit component. Table IV-5 summarizes the calculation of the net public buildings

impact cost per resident. As presented, the net impact cost per resident amounts to $984 for

residential land uses and $1,050 for non-residential land uses.

Description(1)Funding

Source(1)

Number of

Remaining

Payments(1)

Present Value of

Remaining

Payments(2)

Average Annual

Functional

Population(3)

Credit per

Functional

Resident(4)

Judicial Center - Series 2015

Refunding BondAd Valorem 15 $20,737,412 125,460 $165.29

Credit Adjustment Factor(5)1.40

Adjusted Total Debt Service Credit per per Functional Resident (6) $231.41


Table IV-5


1) Source: Table IV-3 2) Source: Table IV-4 3) Total impact cost per resident (Item 1) less the present value of capital expansion credit

per resident (Item 3)

Calculated Public Buildings Impact Fee Schedule

Table IV-6 presents the calculated public buildings impact fee schedule for Flagler County based

on the net impact cost per resident previously presented in Table IV-5.

Variable Impact CostRevenue

Credits

Impact Cost

Total Impact Cost per Functional Resident(1) $1,215.40 -

Revenue Credit

Debt Service Credit per Functional Resident(2)

- Residential Land Uses - $231.41

- Non-Residential Land Uses - $165.29

Net Impact Cost

Net Impact Cost per Functional Resident(3)

- Residential Land Uses $983.99 -

- Non-Residential Land Uses $1,050.11 -


Table IV-6

Calculated Public Buildings Impact Fee Schedule


Unit

Functional

Resident

Coefficient(1)

Calculated

Impact Fee(2)

Residential:

Less than 1,500 sq ft du 1.50 $1,476

1,500 to 2,499 sq ft du 1.67 $1,643

2,500 sq ft or greater du 1.87 $1,840

220/221/222 Multi-Family (Apartment/Condominium) du 0.85 $836

240 Mobile Home du 1.20 $1,181


253 Congregate Care Facility du 1.49 $1,565

310 Hotel room 0.99 $1,040

320 Motel room 0.82 $861

620 Nursing Home bed 1.15 $1,208

Recreational:

411 Public Park acre 0.05 $53

416 RV Park site 0.47 $494

420 Marina berth 0.13 $137

430 Golf Course hole 0.84 $882

444 Movie Theater screen 5.19 $5,450

492 Health/Fitness Club 1,000 sf 2.41 $2,531

Institutional:

520 Elementary School (Private) student 0.08 $84

522 Middle/Jr High School (Private) student 0.09 $95

530 High School (Private) student 0.09 $95

540 University/Jr College (7,500 or fewer students)(Private) student 0.10 $105

550 University/Jr College (more than 7,500 students)(Private) student 0.08 $84

560 Church 1,000 sf 0.37 $389

565 Day Care Center 1,000 sf 0.81 $851

Medical:

610 Hospital 1,000 sf 1.29 $1,355

Office:

710 Office 1,000 sf 0.89 $935

714 Corporate Headquarters Building 1,000 sf 0.97 $1,019

720 Medical Office 10,000 sq ft or less 1,000 sf 1.20 $1,260

720 Medical Office greater than 10,000 sq ft 1,000 sf 1.72 $1,806

Retail:

820 Retail/Shopping Center 1,000 sfgla 1.51 $1,586

840/841 New/Used Auto Sales 1,000 sf 1.57 $1,649

849 Tire Superstore bay 2.12 $2,226

850 Supermarket 1,000 sf 2.41 $2,531

851 Convenience Market - 24 hrs 1,000 sf 6.39 $6,710

862 Home Improvement Superstore 1,000 sf 1.94 $2,037

880/881 Pharmacy/Drug Store with or w/o Drive-Thru 1,000 sf 1.85 $1,943

890 Furniture Store 1,000 sf 0.32 $336

210



Table IV-6 (Continued)

Calculated Public Facilities Impact Fee Schedule

1) Source: Appendix A, Table A-14 for residential and transient, assisted, group land uses and Table A-17 for

non-residential land uses 2) Net impact cost per functional resident from Table IV-5 multiplied by the functional resident coefficient (Item

1) for each land use


As part of the work effort in updating Flagler County’s public buildings impact fee program, a

comparison of the County’s calculated public buildings impact fee schedule to fees adopted by

other select Florida counties was completed. Table IV-7 presents this comparison.


Unit

Functional

Resident

Coefficient(1)

Calculated

Impact Fee(2)

Services:

911 Bank/Savings Walk-In 1,000 sf 1.03 $1,082

912 Bank/Savings w/Drive-In 1,000 sf 1.49 $1,565

931 Quality Restaurant 1,000 sf 5.76 $6,049

932 High-Turnover (Sit-Down) Restaurant 1,000 sf 5.57 $5,849

934 Fast Food Restarurant w/Drive-Thru 1,000 sf 9.70 $10,186

941 Quick Lubrication Vehicle Shop bay 1.60 $1,680

942 Automobile Care Center 1,000 sf 1.67 $1,754

944 Gas Station w/Convenience Market <2,000 sq ft fuel pos. 1.46 $1,533

945 Gas Station w/Convenience Market 2,000-2,999 sq ft fuel pos. 1.78 $1,869

960 Gas Station w/Convenience Market 3,000+ sq ft fuel pos. 2.02 $2,121

n/a Gasoline/Convenience w/Fast Food 1,000 sf 7.97 $8,369

Industrial:

110 General Light Industrial 1,000 sf 0.50 $525

130 Industrial Park 1,000 sf 0.35 $368

140 Manufacturing 1,000 sf 0.46 $483

150 Warehouse 1,000 sf 0.11 $116

151 Mini-Warehouse 1,000 sf 0.04 $42


Table IV-7

Public Buildings Impact Fee Comparison

1) Represents that portion of the maximum calculated fee for each respective county that is actually charged. Fees may have been lowered through indexing

or policy discounts. Does not account for moratoriums/suspension. 2) Du = dwelling unit 3) Source: Table IV-6 4) Source: St. Johns County Resolution No. 2018-432. Non-residential fees reflect a 40% reduction. 5) Source: Charlotte County Community Development Department 6) Source: Citrus County Growth Management Department 7) Source: Collier County Impact Fee Administration Department 8) Source: Tindale Oliver Hernando County Impact Fee Update Study 2021. Fees shown are 100% of calculated fees and not yet adopted. 9) Source: Indian River County. Fee shown is for unincorporated Indian River County. Residential fees adopted at 50% of calculated rate and commercial fees

adopted at 26% of calculated rate. 10) Source: Martin County Growth Management Department. 11) Source: St. Lucie County Planning & Development Services Department

Date of Last Update 2021 2018 2014 2021 2016 2020 2020 2012 2017

Assessed Portion of Calculated(1)

N/A 100% / 60% 51% 100% 100% N/A 50%/26% N/A 100%

Residential:

Single Family Detached (2,000 sq ft) du $1,643 $710 $374 $298 $934 $1,200 $415 $646 $365

Multi-Family (3 Stories) du $836 $570 $198 $229 $444 $878 $344 $646 $327

Non-Residential:

Light Industrial 1,000 sf $525 $200 $182 $77 $359 $366 $68 $182 $74

Office (50,000 sq ft) 1,000 sf $935 608 $314 $179 $620 $651 $121 $316 $323

Retail (125,000 sq ft) 1,000 sf $1,586 $1,168 $559 $377 $1,275 $1,105 $205 $551 $547

Bank w/Drive-In 1,000 sf $1,565 $433 $601 $377 $1,187 $1,091 $202 $554 $476

Fast Food w/Drive-Thru 1,000 sf $10,186 $1,012 $2,346 $377 $4,633 $7,137 $1,316 $2,482 $476

St. Lucie

County(11)

Indian River

County(9)

Collier

County(7)

Hernando

County(8)

Charlotte

County(5)

Citrus

County(6)

Martin

County(10)

St. Johns

County(4)Land Use Unit(2)

Flagler

County

Calculated(3)


V. Library Facilities This section discusses the analysis used in developing the library facilities impact fee. Several





• Cost Component


• Net Library Facilities Impact Cost

• Calculated Library Facilities Impact Fee Schedule



Facility Inventory

Flagler County owns and operates two library facilities throughout the county. According to the

information provided by Flagler County, the inventory associated with library facilities includes

36,300 square feet of buildings and 20 acres of land.

As shown in Table V-1, the total value of library facilities is estimated at $12.3 million, of which

$10.9 million is buildings and the remaining $1.4 million is land. The building value is estimated

at $300 per square foot which is based on the estimates provided by Flagler County for the new

Southern Library, insurance values of existing facilities, cost estimates obtained from other

Florida jurisdictions and discussions with the representatives from Flagler County. Land values

are based on a review of appraisals/estimates for upcoming purchases, current value of land

where existing facilities are located based on information obtained from the Flagler County

Property Appraiser as well as vacant land sales and values of similarly sized and located parcels.

Land value for library facilities is estimated at $70,000 per acre.


Table V-1

Library Facilities Building and Land Inventory

1) Source: Flagler County 2) Source: Flagler County 3) Source: Flagler County 4) Source: Flagler County 5) Source: Flagler County 6) Square feet (Item 4) divided by total square feet on site (Item 5) multiplied by acres (Item 3) 7) Estimated building value per square foot (Item 11) multiplied by square feet (Item 4) 8) Source: Allocated acreage (Item 6) multiplied by the estimated land value per acre (Item 12) 9) Sum of building and land value (Items 7 and 8) 10) Square feet includes only the library portion of building and excludes portion associated with Sally’s Safe Haven which is included in the public buildings

impact fee 11) Source: Appendix B 12) Source: Appendix B

Description(1) AddressYear

Built(2) Acres(3) Square

Feet(4)

Total Square

Feet on Site(5)

Allocated

Acreage(6)

Building

Value(7)

Land

Value(8)

Total Building

and Land

Value(9)

Main Palm Coast Branch Library 2500 Palm Coast Parkway 2000 19.31 33,000 33,000 19.31 $9,900,000 $1,351,700 $11,251,700

Bunnell Branch Library(10)

103 E Moody Blvd 1990 0.32 3,296 4,943 0.21 $988,800 $14,700 $1,003,500

Total 36,296 - 19.52 $10,888,800 $1,366,400 $12,255,200

Building Value per Square Foot(11) $300

Land Value per Acre(12) $70,000


In addition to buildings and land, the Flagler County Public Library System houses library

collections/materials that are owned by the County and are available to the public. Table V-2

presents the inventory of library materials with an estimated value of $2.9 million.

Table V-2

Library Facilities Material Inventory

1) Source: Flagler County 2) Total value (Item 3) divided by unit count (Item 1) 3) Source: Flagler County


Flagler County provides library facilities and services throughout all of Flagler County, with the

exception of the City of Flagler Beach. As such, the proper benefit district is countywide,

excluding Flagler Beach. Appendix A, Table A-1, provides the estimated population for 2020 and

the projected population through 2045. Library facilities impact fees are charged only to

residential land uses. As such, the weighted seasonal population per housing unit is used to

measure demand from each residential land use, which is presented in Appendix A.

Level of Service

Table V-3 provides a summary of the current achieved LOS for library buildings and materials in

Flagler County. Also included in the following table is a comparison to the LOS of the other Florida

counties, and State standards. The comparison includes counties with a population of 100,000

to 750,000 and is based on the information obtained from the Library Directory with Statistics,

published by the Department of State, Division of Library and Information Services. State

standards are obtained from the Florida Library Association. Flagler County’s current achieved

LOS is used for the impact fee calculations with the assumption that the County will continue to

provide this LOS in the future.

DescriptionUnit

Count(1)

Unit

Value(2)

Total

Value(3)

Material Collections 128,949 $22.31 $2,877,210


Table V-3

Current Level of Service (2020) & Comparison

1) Source Table V-1 for building square footage and Table V-2 for count of materials 2) Source: Appendix A, Table A-1 3) Square footage/count (Item 1) divided by population (Item 2) 4) Source: Florida Department of State (Department), Division of Library and Information Services 2017-2018 Public

Library Statistics. Includes counties in the service population level of 100,001 to 750,000 as reported by the Department

5) Source: Florida Library Association Standards for Florida Public Libraries 2004, 2006 Revision - Standard 52 updated April, 2013

Cost Component

The cost component of the study evaluates the cost of capital items, including buildings, land,

and materials. Table V-4 provides a summary of all capital costs, which amounts to approximately

$15.1 million.

Table V-4 also presents the cost per resident for the impact fee analysis. This cost is calculated

by multiplying the total building and land value per square foot and total material value per unit

by their current LOS of 0.32 square feet per resident and 1.12 material units per resident. As

shown, these calculations result in $108 per resident for buildings and land, and $25 per resident

for materials, totaling $133 per resident for all library assets considered in the impact fee

calculations.

Square

Footage/

Count(1)

Weighted

Population(2)

Current

Level of

Service(3)

Essential Enhanced Exemplary

Library Buildings 36,296 114,960 0.32 0.42 0.60 0.70 1.00

Library Materials 128,949 114,960 1.12 1.83 2.00 3.00 4.00

Category

2020 Average of

Other FL

Counties per

Capita(4)

FLA Public Library Standards per Capita(5)


Table V-4


1) Source: Table V-1 2) Source: Table V-1 3) Source: Table V-2 4) Sum of building value, land value, and material value (Items 1, 2, and 3) 5) Sum of building and land values (Items 1 and 2) 6) Source: Table V-1 7) Total building and land value (Item 5) divided by building square footage (Item 6) 8) Source: Table V-3 9) Total building and land value per square foot (Item 7) multiplied by the current level of service (Item 8) 10) Source: Table V-2 11) Total material value (Item 3) divided by total material count (Item 10) 12) Source: Table V-3 13) Total material value per unit (Item 11) multiplied by the current level of service (Item 12) 14) Sum of total building and land cost per resident (Item 9) and total material cost per resident (Item 13) 15) Distribution of total asset value

Variable FigurePercent of

Total(15)

Total Building Value (1) $10,888,800 72.0%

Total Land Value(2) $1,366,400 9.0%

Total Material Value(3) $2,877,210 19.0%

Total Asset Value(4) $15,132,410 100.0%

Building and Land Value

Total Building and Land Value (5) $12,255,200

Total Building Square Footage (6) 36,296

Total Building and Land Value per Square Foot(7) $337.65

Current LOS (Sq. Ft. per Resident) (8) 0.32

Total Building and Land Cost per Resident(9) $108.05

Material Value

Total Material Value $2,877,210

Total Count(10) 128,949

Total Material Value per Unit(11) $22.31

Current LOS (Material Count per Resident) (12) 1.12

Total Material Cost per Resident(13) $24.99

Total Capital Asset Value

Total Impact Cost per Resident(14) $133.04


Credit Component

To avoid overcharging new development, a review of funding for library capital expansion

projects over the past five years and those programmed for the next five years was completed.

The purpose of this review was to determine any potential revenues generated by new

development, other than impact fees, that are being used or will be used to fund the expansion

of capital facilities, land, and materials for the County’s libraries program. As mentioned

previously, the credit component does not include any capital renovation, maintenance, or

operations expenses, as these types of expenditures do not add capacity and should not be

considered for impact fee credit.


Capital expansion expenditure credits per resident were calculated based on non-impact fee

revenue funding for capital expansion projects over the past five years and programmed for next

five years. To calculate the capital expenditure per resident, the average annual capital

expansion expenditures are divided by average annual population for the same period.

As shown in Table V-5, the average annual expenditure over this ten-year period amounts to

approximately $31,400 or approximately $0.27 per resident per year.

Table V-5

Capital Expansion Credit per Resident

1) Source: Flagler County 2) Average annual capital expenditures over the 10-year period 3) Source: Appendix A, Table A-1. Average annual population over the 10-year period 4) Average annual capital expansion expenditures (Item 2) divided by average annual population (Item 3)

Description Funding Source2016-2025

Total

Teen Department at Palm Coast Facility

(Furnishing and Equipment)Friends of the Library $36,000

Land Acquisition Library Passport Revenue $278,000

Total $314,000

Average Annual Capital Expansion Expenditures(2) $31,400

Average Annual Population(3) 115,354

Capital Expansion Credit per Resident(4) $0.27


Net Library Facilities Impact Cost

The net library facilities impact cost per resident is the difference between the cost component

and the credit component. Table V-6 summarizes the calculation of the net library facilities

impact cost per resident. As presented, the net impact cost amounts to $128 per resident.

Table V-6


1) Source: Table V-4 2) Source: Table V-5 3) Present value of the capital expansion credit per resident at a capitalization rate of 2.50% 4) Total impact cost per resident (Item 1) less the present value of capital expansion credit per

resident (Item 3)

Calculated Library Facilities Impact Fee Schedule

Table V-7 presents the calculated library facilities impact fee schedule for Flagler County for

residential land uses, based on the net impact cost per resident previously presented in Table V-

6.

VariableImpact

Cost

Revenue

Credits

Impact Cost

Total Impact Cost per Resident(1)

$133.04 -

Impact Credit

Capital Expansion Credit per Resident(2)

- $0.27

Capitalization Rate - 2.50%

Capitalization Period (in years) - 25

Present Value of Capital Expansion Credit per Resident (3) - $4.97

Net Impact Cost

Net Impact Cost Per Resident(4) $128.07 -


Table V-7

Calculated Library Facilities Impact Fee Schedule

1) Source: Appendix A, Table A-3 2) Net impact cost per functional resident from Table V-6 multiplied by

resident per unit (Item 1)


As part of the work effort in updating Flagler County’s library facilities impact fee program, a

comparison of the County’s calculated library facilities impact fee schedules to fee schedules of

other select Florida counties was completed. Table V-8 presents this comparison.

Land UseImpact

Unit

Residents

per Unit(1)

Calculated

Impact Fee(2)

- Less than 1,500 sf du 2.20 $282

- 1,500 to 2,499 sf du 2.44 $312

- 2,500 sf or greater du 2.73 $350

Multi-Family du 1.27 $163

Mobile Home du 1.74 $223

Single Family (detached)


Table V-8

Library Facilities Impact Fee Comparison


annual indexing or policy discounts. Does not account for moratorium/suspensions. 2) du = dwelling unit 3) Source: Table V-7 4) Source: Seminole County Development Services Department. The most recent study was completed in 1990s, and the County is in the process of updating

this fee. 5) Source: Lake County Planning and Zoning Office 6) Source: Charlotte County Planning & Zoning Department 7) Collier County Capital Project Planning, Impact Fees, and Program Management Division 8) Source: Polk County Building Division 9) Source: Sarasota County Planning and Development Services Department


Calculated(3)

Seminole

County(4)

Lake

County(5)

Charlotte

County(6)

Collier

County(7)

Polk

County(8)

Sarasota

County(9)

Date of Last Update 2021 1991 2003 2014 2016 2019 2016

Assessed Portion of Calculated(1) N/A N/A 95% 100% 100% 100% 100%

Residential:

Single Family (2,000 sq. ft) du $312 $54 $191 $337 $336 $169 $683

Multi-Family (Apt) du $163 $54 $146 $267 $160 $125 $554

Mobile Home du $223 $54 $152 $270 $270 $123 $472


VI. Parks & Recreation Facilities This section addresses the analysis used in developing the parks and recreation impact fee.

Several elements addressed in the section include:

• Land and Recreation Facilities Inventory



• Cost Component


• Net Parks and Recreation Facilities Impact Cost

• Calculated Parks and Recreation Facilities Impact Fee Schedule



Park Land and Recreation Facilities Inventory

According to information provided by Flagler County, the County’s land and recreation facilities

inventory utilized for impact fee purposes includes 28 parks totaling nearly 5,731 acres. The

inventory excludes park land that is not owned by the County and parks that are operated by

another entity and generate revenue. Table VI-1 presents a summary of the inventory included

in the parks and recreation facilities impact fee.


Table VI-1

Park Land and Recreation Facility Inventory(1)

Basketbal

l (lighted)

Basketball

(unlighted)

Pickleball

(lighted)

Pickleball

(unlighted)

Racquetball

(lighted)

Tennis

(lighted)

Tennis

(unlighted)

Volleyball

(lighted)

Volleyball

(unlighted)

Activity Based Parks

Carver Gym NP 201 E. Drain St., Bunnell 1.03 11,200 1

Espanola Community Center CP 3570 CR 205, Bunnell 12.00 2,090 1

Hammock Community Center CP 79 Malacompra Rd., Palm Coast 10.00 2,604 1 3 1

Haw Creek Community Center NP 9257 CR 304, Bunnell 1.00 2,736 1

Hidden Trails Park - Community Center CP 6108 Mahogany Blvd., Bunnell 19.70 2,067 1 1

Old Dixie Park CW 1250 S. Old Dixie Highway, Bunnell 20.00 1 2 1 1

Pellicer Creek Community Center NP 1380 CR 2007, Bunnell 10.00 1 1,800

St. Johns Park Community Center NP 89 CR 2006 E, Bunnell 1.75 2,132 1

Wadsworth Park CW 2200 Moody Blvd., Flagler Beach 61.65 5,918 500 2 4 3 1 1

Subtotal - Activity Based 137.13 1.00 5,918 0 0 0 24,629 500 6 3 3 2 4 3 1 1 4

Resource Based Parks

Bay Drive Park CW 30 Bay Dr., Palm Coast 17.12 1,900

Betty Steflik Memorial Preserve CW 815 Moody Ln., Flagler Beach 268.40 17,370

Bings Landing CW 5862 N. Oceanshore Blvd., Palm Coast 14.75 2 1 1,152 2,274

Bull Creek Campground CW 3861 CR 2006, Bunnell 5.14 2 688 2,135

Graham Swamp Preserve CW 5695 Colbert Ln., Palm Coast 3,214.84 9,876

Haw Creek Preserve - Russell Landing CW 1669 CR 2007, Bunnell 1,005.00 20,652 1 1,537

Herschel King Park CP 1000 Grady Prather Jr. Cove, Palm Coast 16.43 5,028 2

Jungle Hut Park CW 125 Jungle Hut Rd., Palm Coast 2.56 920

Lake Disston CW 1426 Lake Disston Dr., Bunnell 2.00 1

Malacompra Greenway Trail/Jungle Hut Loop CW 6271 N. Oceanshore Boulevard 279.26 7,840

Malacompra Park CW 115 Malacompra Road, Palm Coast 75.13 6,984

Moody Boat Launch CW 825 Moody Ln., Flagler Beach 2.79 4,290 4

Old Moody Homestead Park CW 105 Briarwood Dr., Bunnell 3.48

Old Salt Park CW 200 E. 16th Rd., Palm Coast 1.00

Princess Place Preserve CW 2500 Princess Place Rd., Palm Coast 574.08 y y y 1,152

River to Sea Preserve(2) CW 9700 N. Oceanshore Blvd., Palm Coast 40.09 5,300 y 786

Shell Bluff Park CW 14331 W. SR 100, Bunnell 63.28 1

Shell Bluff Boat Launch CW 14565 W. SR 100, Bunnell 1.00 1

Varn Park CW 3665 N. Oceanshore Blvd., Flagler Beach 8.00 5,496

Subtotal - Resource Based Parks 5,594.35 0 85,656 13 2 5,315 0 4,409 0 0 0 0 0 0 0 0 0

Subtotal - Activity and Resource Based Parks 5,731.48 1 91,574 13 2 5,315 24,629 4,909 6 3 3 2 4 3 1 1 4

Total 5,731.48 1 91,574 13 2 5,315 24,629 4,909 6 3 3 2 4 3 1 1 4

Neighborhood Parks 13.78 1 0 0 0 0 17,868 0 1 2 0 0 0 0 0 0 0

Community Parks 58.13 0 5,028 2 0 0 6,761 0 3 0 3 0 0 0 0 0 2

Countywide Parks 5,659.57 0 86,546 11 2 5,315 0 4,909 2 1 0 2 4 3 1 1 2

Pickleball

(lit)

Volleyball

(lit)

Basketbal

l (lit)

Basketball

(unlit) Tennis (lit)

Tennis

(unlit)

Volleyball

(unlit)

Pickleball

(unlit)

Racquetball

Park Name

Caretaker Housing (sq. ft.)Community

Center (sq. ft.)

Concession

s (sq. ft.)

Arena -

Lighted

(sq. ft.)

Boardwalk (sq. ft.)Boat

Ramp

(lane)

Canoe/Kaya

k Launch

(site)

SummaryAcres owned

by County

Acres Owned

by County

Arena -

Lighted

Concession

s (sq. ft.)Type Location Boardwalk (sq. ft.)

Boat

Ramp

(lane)

CourtsCanoe/

Kayak

Launch

(site)

Caretaker Housing (sq. ft.)Community

Center (sq. ft.)


Table VI-1 (Continued)(1)

Park Land and Recreation Facility Inventory

1) Source: Flagler County 2) The park is jointly owned by the County and Town of Marineland. Half the acreage and facilities are included

Standard

(sq. ft.)

Floating

(count)

Football

(lighted)

Multi-

purpose

(lighted)

Multi-

purpose

(unlighted)

Soccer

(lighted)

Softball

(lighted

)

Paved Improved

Activity Based Parks

Carver Gym NP 201 E. Drain St., Bunnell 1 1 516

Espanola Community Center CP 3570 CR 205, Bunnell 1 1 1 378

Hammock Community Center CP 79 Malacompra Rd., Palm Coast 1 1 1 713

Haw Creek Community Center NP 9257 CR 304, Bunnell 1 1

Hidden Trails Park - Community Center CP 6108 Mahogany Blvd., Bunnell 1 2 1 2 868 0.50

Old Dixie Park CW 1250 S. Old Dixie Highway, Bunnell 1 18 1 1 391

Pellicer Creek Community Center NP 1380 CR 2007, Bunnell 1 1

St. Johns Park Community Center NP 89 CR 2006 E, Bunnell 1

Wadsworth Park CW 2200 Moody Blvd., Flagler Beach 1 1 3 2 1 4 2 2 1,705 21,600

Subtotal - Activity Based 0 0 1 1 3 3 2 1 0 0 25 10 10.00 4,571.00 21,600.00 0.50 0.00

Resource Based Parks

Bay Drive Park CW 30 Bay Dr., Palm Coast 1 900 0.60

Betty Steflik Memorial Preserve CW 815 Moody Ln., Flagler Beach 2 1 552 1.90

Bings Landing CW 5862 N. Oceanshore Blvd., Palm Coast 4,972 3 6 1 391

Bull Creek Campground CW 3861 CR 2006, Bunnell 4,464 1,080

Graham Swamp Preserve CW 5695 Colbert Ln., Palm Coast 1 391 8.70

Haw Creek Preserve - Russell Landing CW 1669 CR 2007, Bunnell 1 465

Herschel King Park CP 1000 Grady Prather Jr. Cove, Palm Coast 3,560 1 1 1 585

Jungle Hut Park CW 125 Jungle Hut Rd., Palm Coast 1 399

Lake Disston CW 1426 Lake Disston Dr., Bunnell

Malacompra Greenway Trail/Jungle Hut Loop CW 6271 N. Oceanshore Boulevard 2 9.50

Malacompra Park CW 115 Malacompra Road, Palm Coast 399 1.25

Moody Boat Launch CW 825 Moody Ln., Flagler Beach 3,560 1 391

Old Moody Homestead Park CW 105 Briarwood Dr., Bunnell 1 1 0.25

Old Salt Park CW 200 E. 16th Rd., Palm Coast 1,000

Princess Place Preserve CW 2500 Princess Place Rd., Palm Coast 2 y 1,599 16.00

River to Sea Preserve(2) CW 9700 N. Oceanshore Blvd., Palm Coast 0.5 2 1.5 714 0.75

Shell Bluff Park CW 14331 W. SR 100, Bunnell 1 2 1 391 0.60

Shell Bluff Boat Launch CW 14565 W. SR 100, Bunnell 252

Varn Park CW 3665 N. Oceanshore Blvd., Flagler Beach 488

Subtotal - Resource Based Parks 16,808 3.5 0 0 0 0 0 0 4 6 2 15.5 4 9,745 0 0.00 39.55

Subtotal - Activity and Resource Based Parks 16,808 3.5 1 1 3 3 2 1 4 6 27 25.5 14 14,316 21,600 0.50 39.55

Total 16,808 3.5 1 1 3 3 2 1 4 6 27 25.5 14 14,316 21,600 0.50 39.55

Neighborhood Parks 0 0.0 0 0 0 0 0 0 0 0 0 4.0 3 516 0 0.00 0.00

Community Parks 3,560 0.0 0 0 0 2 0 0 0 0 4 4.0 5 2,544 0 0.50 0.00

Countywide Parks 13,248 3.5 1 1 3 1 2 1 4 6 23 17.5 6 11,256 21,600 0.00 39.55

Paved Improved Standard

(sq. ft.)

Floating

(count) Football

Skateboard

Park (sq. ft.)Dog Park

Fishing

Pier Gazebo

Horseshoe

s (pit)

Multi-

purpose

(lit)

Multi-

purpose

(unlit)

Soccer (lit) Softball

Park Name

Pavilion PlaygroundRestroom

(sq. ft.)Summary

Skateboard

Park (sq. ft.)

Trail (miles)

GazeboHorseshoe

(pit)Pavilion Playground

Restroom

(sq. ft.)

Fishing

Pier

Fields

Type Location

Docks

Dog Park



Based on a review of the park type definitions and level of service (LOS) definitions included in

the County’s Comprehensive Plan, it was determined service area of neighborhood and

community parks is countywide excluding the City of Palm Coast while countywide parks provide

parks and recreational facility services on a countywide basis. Service area populations are used

in the impact fee calculations. Appendix A, Table A-1, provides the estimated population for 2020

and the projected population through 2045. Parks and recreation impact fees are charged only

to residential land uses. As such, the weighted seasonal population per housing unit is used to

measure demand from each residential land use, which is presented in Appendix A.

Level of Service

The current LOS for all County-owned and maintained parks is presented in Table VI-2. To

determine the current LOS, the total acreage of each park type is divided by the service area

population for 2020 and multiplied by 1,000. This achieved LOS is compared to the adopted LOS

standard for each park. While the achieved LOS represents the investment made into the park

land, the adopted LOS standard indicates the intended LOS going forward. For impact fee

purposes, the lower of the two measures is used not to overcharge new development. As shown,

the total LOS of 33 acres per 1,000 permanent residents is utilized in the calculation of the parks

and recreation facilities impact fee.

Table VI-2


1) Source: Appendix A, Table A-18 and Appendix A, Table A-22. Consistent with the LOS standards, permanent

population is used. 2) Source: Table VI-1 3) Park acreage (Item 2) divided by population (Item 1) multiplied by 1,000 4) Source: Flagler County, Recreation and Open Space Element 5) Lower of the achieved LOS (Item 3) and adopted LOS standard (Item 4)

Park Classification2020 Permanent

Population(1)

Park

Acreage(2)

Achieved

LOS(3)

Adopted LOS

Standard(4)

LOS Used in

the Study(5)

Neighborhood Parks 24,736 13.78 0.56 1.00 0.56

Community Parks 24,736 58.13 2.35 3.00 2.35

Countywide Parks 114,173 5,659.57 49.57 30.00 30.00

5,731.48 52.48 34.00 32.91Total Park Acreage/LOS - All Parks


Table VI-3 presents a comparison of the parks and recreation adopted LOS standards of other

select Florida counties to Flagler County’s adopted LOS standard in terms of acreage per

population. As shown, the County’s LOS standard is higher than that of the other counties

reviewed.

Table VI-3

Level of Service Comparison

1) Source: Flagler County Comprehensive Plan 2010-2035;

Recreation & Open Space Element, Section H, Policy H.1.1.1 2) Source: St. Johns County 2025 Comprehensive Plan;

Recreation and Open Space Element, Section F, Policy F.1.3.1 3) Source: Lake County 4) Source: City of Palm Coast 2035 Comprehensive Plan; Chapter

4 - Public Recreation and Open Space, Policy 4.1.1.1 5) Source: Volusia County Comprehensive Plan; Chapter 13 -

Recreation and Open Space, Policy 13.1.5.1 6) Source: Seminole County Comprehensive Plan; Recreation

and Open Space, Objective Rec 4, Policy Rec 4.1 A&B 7) Source: Marion County 2035 Comprehensive Plan; Recreation

and Open Space Element, Policy 1.1.1 8) Source: Putnam County Comprehensive Plan; Recreation and

Open Space Element, Section F, Policy F.1.3.2

Cost Component

The capital cost associated with parks and recreation facilities consists of two components: the

cost of recreational facilities located at each park and the cost of purchasing and developing land

for each park. The following paragraphs address recreation facility and park land value estimates.

Jurisdiction

Level of Service

(Acres per 1,000

residents)

Flagler County(1) 34.00

St. Johns County(2) 28.00

Lake County(3) 10.00

City of Palm Coast(4) 8.00

Volusia County(5) 7.00

Seminole County(6) 3.60

Marion County(7) 2.00

Putnam County(8) 2.00


Recreational Facility Value

To estimate current recreational facility value, multiple sources were reviewed to determine the

unit cost of each recreational facility type, including insured values of the facilities, recent cost

information obtained for similar facilities from other jurisdictions and input from Flagler County

representatives.

In addition to the construction cost of recreational facilities, the architectural, engineering and

inspection (AE&I) costs associated with developing this infrastructure are also included. The AE&I

cost is estimated at 10 percent of the construction cost based on industry standards and

estimates obtained from several Florida jurisdictions.

As shown in Table VI-4, the total recreational facility value for all parks is $28.8 million, which

equates to an average of $467 per resident.


Table VI-4

Recreational Facility Value

Neighborhood Community Countywide All Neighborhood Community Countywide All

Arena - Lighted arena $100,000 1 0 0 1 $100,000 $0 $0 $100,000

Boardwalk sq. ft. $100 0 5,028 86,546 91,574 $0 $502,800 $8,654,600 $9,157,400

Boat Ramp/ Canoe/ Kayak Launch lane $165,000 0 2 13 15 $0 $330,000 $2,145,000 $2,475,000

Caretaker Housing sq. ft. $85 0 0 5,315 5,315 $0 $0 $451,775 $451,775

Community/Activity Center sq. ft. $125 17,868 6,761 0 24,629 $2,233,500 $845,125 $0 $3,078,625

Concession sq. ft. $95 0 0 4,909 4,909 $0 $0 $466,355 $466,355

Courts:

Basketball (lighted) court $75,000 1 3 2 6 $75,000 $225,000 $150,000 $450,000

Basketball (unlighted) court $50,000 2 0 1 3 $100,000 $0 $50,000 $150,000

Pickleball (lighted) court $30,000 0 3 0 3 $0 $90,000 $0 $90,000

Pickleball (unlighted) court $20,000 0 0 2 2 $0 $0 $40,000 $40,000

Racquetball (lighted) court $60,000 0 0 4 4 $0 $0 $240,000 $240,000

Tennis (lighted) court $65,000 0 0 3 3 $0 $0 $195,000 $195,000

Tennis (unlighted) court $40,000 0 0 1 1 $0 $0 $40,000 $40,000

Volleyball (lighted) court $15,000 0 0 1 1 $0 $0 $15,000 $15,000

Volleyball (unlighted) court $7,000 0 2 2 4 $0 $14,000 $14,000 $28,000

Docks:

Dock (Standard) sq. ft. $50 0 3,560 13,248 16,808 $0 $178,000 $662,400 $840,400

Dock (Floating) dock $35,000 0 0 3.5 3.5 $0 $0 $122,500 $122,500

Dog Park park $135,000 0 0 1 1 $0 $0 $135,000 $135,000

Fields:

Football (Lighted) field $220,000 0 0 1 1 $0 $0 $220,000 $220,000

Multi-Purpose (Lighted) field $185,000 0 0 3 3 $0 $0 $555,000 $555,000

Multi-Purpose (Not Lighted) field $110,000 0 2 1 3 $0 $220,000 $110,000 $330,000

Soccer/ Football (Lighted) field $220,000 0 0 2 2 $0 $0 $440,000 $440,000

Softball Field (Lighted) field $250,000 0 0 1 1 $0 $0 $250,000 $250,000

Fishing Pier pier $65,000 0 0 4 4 $0 $0 $260,000 $260,000

Gazebo gazebo $15,000 0 0 6 6 $0 $0 $90,000 $90,000

Horseshoes pits $1,400 0 4 23 27 $0 $5,600 $32,200 $37,800

Pavilions pavilion $50,000 4.0 4.0 17.5 25.5 $200,000 $200,000 $875,000 $1,275,000

Playgrounds playground $35,000 3 5 6 14 $105,000 $175,000 $210,000 $490,000

Description UnitUnit

Cost(1)Unit Count by Park Classification

(2)Total Value by Park Type

(3)


Table VI-4 (Continued)

Recreational Facility Values

1) Estimates based on insured values of the facilities, input from Flagler County staff, and recent cost information obtained for similar facilities from other Florida

jurisdictions. 2) Source: Table VI-1 3) Inventory count by park type (Item 2) multiplied by the estimated unit cost (Item 1) 4) Facility and equipment value multiplied by 10% based on industry standards and information provided from other Florida jurisdictions 5) Sum of the facilities and equipment value and the architecture, engineering, and inspection cost (Item 4) 6) Source: Table VI-1 7) Total facilities and equipment value (Item 5) divided by total number of acres (Item 6) 8) Source: Appendix A, Tables A-18 and A-22 9) Total facilities and equipment value (Item 6) divided by service area permanent population (Item 8)

Neighborhood Community Countywide All Neighborhood Community Countywide All

Fields:

Restrooms sq. ft. $110 516 2,544 11,256 14,316 $56,760 $279,840 $1,238,160 $1,574,760

Skateboard Park skatepark $170,000 0 0 1 1 $0 $0 $170,000 $170,000

Walking/ Bike Trail (paved) mile of trail $450,000 0.00 0.50 0.00 0.50 $0 $225,000 $0 $225,000

Walking/ Bike Trail (improved) mile of trail $55,000 0.00 0.00 39.55 39.55 $0 $0 $2,175,250 $2,175,250

$2,870,260 $3,290,365 $20,007,240 $26,167,865

$287,026 $329,037 $2,000,724 $2,616,787

$3,157,286 $3,619,402 $22,007,964 $28,784,652

5,731.48

$5,022

24,736 24,736 114,173

$127.64 $146.32 $192.76 $466.72

Description UnitUnit

Cost(1)Unit Count by Park Classification(2) Total Value by Park Type(3)

Total Permanent Population(8)

Total Facilities and Equipment Cost per Resident(9)

Facilities and Equipment Value

Architecture, Engineering, and Inspection @ 10%(4)

Total Facilities and Equipment Value(5)

Total Number of Acres(6)

Total Recreational Facility Cost per Acre(7)


Land Cost The park land value per acre for the County’s park inventory is calculated based on the value of

current park land by type, vacant land sales of similar size parcels over the past three years, value

of similar size vacant parcels based on information obtained from the Flagler County Property

Appraiser’s database, and discussions with Flagler County representatives. This analysis resulted

in an estimated average land value of $25,000 per acre for active parks, which are typically the

neighborhood and community parks, and $5,000 per acre for passive parks, which are mostly the

countywide parks. This information is presented in Table VI-5. Appendix B provides further detail

regarding the calculation of the land value.

The cost of land for parks and recreation facilities includes more than just the purchase cost of

the land. Landscaping, site improvement, and parking costs are also considered. These costs can

vary greatly, depending on the type of park. The estimated cost for landscaping, site preparation,

and parking is estimated at $10,000 per acre for neighborhood and community parks. This cost

is estimated to be negligible for countywide passive parks, and therefore, is not included.

These land costs are converted to land value per resident using the LOS calculated previously and

result in average land value of $252 per resident.

Table VI-5

Land Cost per Resident

1) Source: Appendix B 2) Based on information from several Florida jurisdictions 3) Sum of land purchase cost per acre and landscaping, site prep., and irrigation cost per acre (Items 1 and 2) 4) Source: Table VI-2 5) Total land cost per acre (Item 3) multiplied by LOS (Item 4) divided by 1,000


Table VI-6 presents total parks and recreation facility value per resident. As presented, the total

parks and recreation facilities impact cost is estimated at $719 per resident, of which $252 is for

land and $467 is for recreational facilities.

Neighborhood Community Countywide Total

Land Purchase Cost per Acre(1)$25,000 $25,000 $5,000

Landscaping, Site Prep., and Irrigation Cost per Acre(2) $10,000 $10,000 $0

Total Land Cost per Acre(3) $35,000 $35,000 $5,000

LOS Used in the Study(4)

0.56 2.35 30.00 32.91

Total Land Value per Resident(5)

$19.60 $82.25 $150.00 $251.85

VariablePark Type


Table VI-6


1) Source: Table VI-5 2) Source: Table VI-4 3) Sum of land and facility and equipment cost per resident (Items 1 and 2) 4) Percentage of total parks and recreation facility cost per resident

Credit Component

To avoid overcharging new development for the capital cost of providing parks and recreation

services, a review of the capital funding program for the parks and recreation program was

completed. The purpose of this review is to estimate any future revenues generated by new

development, other than impact fees, which will be used to fund the expansion of capital facilities

and land related to the Flagler County’s parks and recreation program. As mentioned previously,

the credit component does not include any capital renovation, maintenance, or operations

expenses, as these types of expenditures do not add capacity and should not be considered for

impact fee credit.


Capital expansion expenditure credits per resident were calculated based on non-impact fee

revenue funding for capital expansion projects programmed over the past four years. To

calculate the capital expenditure per resident, the average annual capital expansion expenditures

are divided by average population for the same period. As shown in Table VI-7, the average

annual expenditure over this four-year period amounts to approximately $322,000 and

approximately $5 per resident per year.

Variable Per Resident % of Total(4)

Per Resident

Total Land Cost(1) $251.85 35%

Recreational Facility Cost(2) $466.72 65%

Total Impact Cost(3) $718.57 100%


Table VI-7


1) Source: Flagler County 2) Average capital expenditures over the four-year period 3) Average capital expenditures over the four-year period for by park type 4) Source: Appendix A, Tables A-18 and A-22 5) Average annual expenditures (Item 3) divided by service area population for the same years (Item 4) 6) Sum of average annual expenditures for neighborhood and countywide parks

Description(1) Park

ClassificationFY 2018 FY 2019 FY 2020 FY 2021

Total (FY

2018-21)

1/2-Cent Small County Discreationary Sales Tax & Other Funds (1)

Carver Gym Expansion Neighborhood $4,100 $3,617 $108,154 $108,154 $224,025

River to Sea Cottages Countywide $669,095 $669,095

Bing's Landing Parking Expansion Countywide $7,552 $130,000 $137,552

Wadsworth Park New Restroom Countywide $42,500 $42,500

Princess Place Eco-Cottages (FDEP/Research/Tourism) Countywide $183,940 $30,091 $214,031

Total Capital Expansion Expenditures $195,592 $33,708 $949,749 $108,154 $1,287,203

$321,801

$56,006

24,120

$2.32

$265,795

112,214

$2.37

$4.69

Annual Capital Expansion Expenditure per Person -- Countywide Parks(5)

Annual Capital Expansion Expenditures(2)

Annual Capital Expansion Expenditure per Person(6)

Annual Capital Expansion Expenditures -- Neighborhood Parks (3)

Average Population (FY 2018-2021) -- Neighborhood Parks(4)

Annual Capital Expansion Expenditure per Person -- Neighborhood Parks(5)

Annual Capital Expansion Expenditures -- Countywide Parks (3)

Average Population (FY 2018-2021) -- Countywide Parks(4)


Net Parks & Recreation Facilities Impact Cost

The net impact cost per resident is the difference between the cost and credit components. Table

VI-8 summarizes the calculation of the net impact cost for the parks and recreational facilities

impact fee. As presented, the net impact cost amounts to approximately $632 per resident.

Table VI-8


1) Source: Table VI-6 2) Source: Table VI-7 3) Present value of annual credit per resident (Item 2) over a 25‐year period with a

capitalization rate of 2.5%. Interest rate provided by Flagler County. 4) Total impact cost per resident (Item 1) less the present value capital improvement credit

per resident (Item 3)

Calculated Parks & Recreation Facilities Impact Fee Schedule

Table VI-9 presents the calculated parks and recreation facilities impact fee schedule for Flagler

County for residential land uses, based on the net impact cost per resident previously presented

in Table VI-8. Also presented is a comparison to the County’s current adopted fee and percent

change from the current fee.

VariableImpact

Cost

Revenue

Credits

Impact Cost

Total Impact Cost per Resident(1)

$718.57 -

Revenue Credit

$4.69

2.5%

25

$86.41

Net Impact Cost

Net Impact Cost per Resident(4)

$632.16 -

Avg Annual Capital Expansion Credit per Resident(2)

Capitalization Rate

Capitalization Period (in years)

Present Value Capital Improvement Credit per Resident(3)


Table VI-9

Calculated Parks and Recreation Facilities Impact Fee Schedule

1) Source: Appendix A, Table A-6 2) Net impact cost per resident from Table VI-8 multiplied by residents per unit (Item 1) for each land use 3) Flagler County Code, Chapter 17, Impact Fee Schedule. Fees shown adopted at the time of publication of this

study 4) Percent change from the adopted impact fee (Item 3) to the calculated impact fee (Item 2)


As part of the work effort in updating Flagler County’s parks and recreation impact fee schedule,

the County’s calculated and adopted impact fee schedule was compared to the adopted fee

schedules of select Florida counties. Table VI-10 presents this comparison.

Residential Land UseImpact

UnitITE LUC

Residents

per Unit(1)

Calculated

Impact

Fee(2)

Current

Adopted

Fee(3)

% Change

from

Adopted(4)

Residential:

Less than 1,500 sq ft du 1.62 $1,024 $268 282%

1,500 to 2,499 sq ft du 1.80 $1,138 $268 325%

2,500 sq ft or greater du 2.02 $1,277 $268 377%

Multi-Family (Apartment/Condominium/Townhouse) du 220/221/222 0.72 $455 $268 70%

Mobile Home du 240 1.68 $1,062 $269 295%

210

Single Family (detached):


Table VI-10

Calculated Parks & Recreation Facilities Impact Fee Schedule

1) Represents the portion of the maximum calculated fee for each respective county that is actually charged. Fee may have been lowered/increased

through annual indexing or policy discounts. Does not account for moratorium/suspensions. 2) du = dwelling unit 3) Source: Table VI-9 4) Source: Flagler County Code, Chapter 17 5) Source: Volusia County Growth and Resource Management Department; Applicable to Residential Unincorporated Volusia County; Park fees

classified under Cultural/Rec Local and Cultural/Rec District 6) Source: St. Johns County Ordinance No. 2018-16. Fees are indexed annually 7) Source: Lake County Planning and Zoning Office; Fees Shown effective as of 3/4/2020; Three regions - North and Central Benefit Districts,

Northeast / Wekiva Benefit District, South Benefit District 8) Source: City of Palm Coast Community Development Department. Parks impact fees receive a 3% discount if paid at time of permit issuance

Land Use Unit(2)

Flagler

County

Calculated(3)

Flagler

County

Existing(4)

Volusia

County(5)

St. Johns

County(6)

Lake

County(7)

City of Palm

Coast(8)

Date of Last Update 2021 2003 N/A 2018 2003 2020

Assessed Portion of Calculated(1)N/A 100% N/A 100% 85% 77%

Residential:

Single Family (2,000 sq ft) du $1,138 $268 $596 $1,429 $222 $1,199

Multi-Family (1,300 sq ft) du $455 $268 $596 $1,148 $171 $1,199

Mobile Home (1,300 sq ft) du $1,062 $269 $596 $1,148 $177 $1,199


VII. Transportation

This section summarizes the analysis used to update Flagler County’s transportation impact fee

schedule and includes the following subsections:

• Demand Component

• Cost Component


• Calculated Transportation Impact Fee

• Transportation Impact Fee Comparison

As in the case of the other impact fee program areas, the methodology used for the

transportation impact fee study follows a consumption-driven approach in which new

development is charged based upon the proportion of vehicle-miles of travel (VMT) that each

unit of new development is expected to consume of a lane-mile of the transportation network.

Included in this document is the necessary support material used in the calculation of the multi-

modal transportation impact fee. The general equation used to compute the impact fee for a

given land use is:

[Demand x Cost] – Credit = Fee

The “demand” for travel placed on a transportation system is expressed in units of Vehicle-Miles

of Travel (VMT) (daily vehicle-trip generation rate x the trip length (in miles) x the percent new

trips [of total trips]) for each land use contained in the impact fee schedule. Trip generation

represents the average daily rates to provide a stable measure of new development’s impact.

The number of trips tends to vary significantly throughout the day by time of day depending on

activity levels; however, overall daily trips tend to be stable.

The “cost” of building new capacity typically is expressed in units of dollars per vehicle-mile of

transportation capacity and is based on recent transportation costs for county facilities.

The “credit” is an estimate of future non-impact fee revenues generated by new development

that are allocated to provide transportation capacity expansion. The impact fee is considered to

be an “up front” payment for a portion of the cost of a lane-mile of capacity that is directly related

to the amount of capacity consumed by each unit of land use contained in the impact fee

schedule, that is not paid for by future tax revenues generated by the new development activity


over the next 25 years. These credits are required under the supporting case law for the

calculation of impact fees where a new development activity must be reasonably assured that

they are not paying, or being charged, twice for the same level of service.

The input variables used in the fee equation are as follows:

Demand Variables:

• Trip generation rate

• Trip length

• Percent new trips

• Interstate & toll facility adjustment factor

Cost Variables:

• Cost per vehicle-mile

• Capacity added per lane mile

Credit Variables:

• Equivalent gas tax credit (pennies)

• Present worth

• Fuel efficiency

• Effective days per year

Demand Component

Travel Demand

Travel demand is the amount of a transportation system consumed by a unit of new land

development activity. Demand is calculated using the following variables and is measured in

terms of the vehicle-miles of new travel (VMT) a unit of development consumes on the existing

county roadways.

• Number of daily trips generated (Trip Generation Rate = TGR)

• Average length of those trips (Trip Length = TL)

• Proportion of travel that is new travel, rather than travel that is already traveling on the

road system and is captured by new development (Percent New Trips = PNT)


As part of this update, the trip characteristics variables were obtained primarily from two

sources: (1) trip characteristics studies previously conducted throughout Florida (Florida Studies

Database), and (2) the Institute of Transportation Engineers’ (ITE) Trip Generation Handbook (10th

edition). The Florida Studies Database (included in Appendix C) was used to determine trip

length, percent new trips, and the trip generation rate for several land uses.

Trip Length Adjustment Factor

Trip lengths for all land uses were adjusted to account for differences between the average trip

lengths included in the Florida Studies Database, the Central Florida Regional Planning Model

v6.1 (CFRPM v6.1), and other Florida Standard Urban Transportation Model Structure (FSUTMS)

model results. The CFRPM model data suggested that trip lengths are typically longer in Flagler

County compared to other Florida counties. Therefore, residential and office trip lengths were

increased by 15 percent, while lodging, recreational, institutional, retail, service, and industrial

trip lengths were increased by five (5) percent.

Interstate & Toll Facility Adjustment Factor

This variable is used to recognize that interstate highway and toll facility improvements are

funded by the State (specifically, the Florida Department of Transportation) using earmarked

State and Federal funds. Typically, transportation impact fees are not used to pay for these

improvements and the portion of travel occurring on the interstate/toll facility system is usually

eliminated from the total travel for each use.

To calculate the interstate and toll (I/T) facility discount factor, the loaded highway network1 file

was generated for the CFRPM v6.1. A select link analysis was conducted for all traffic analysis

zones located within Flagler County in order to differentiate trips with an origin and/or

destination within the county versus trips with no origin or destination within the county.

Currently, interstate/toll facilities within the study area include Interstate 95 and the Hammock

Dunes Bridge (tolled). The limited access vehicle-miles of travel (Limited Access VMT) for trips

with an origin and/or destination within the County was calculated for the identified limited

access facilities. The total VMT was calculated for all trips with an origin and/or destination

within the study area for all roads, including limited access facilities.

1 The “loaded highway network” refers to the final travel demand model roadway network with traffic volumes assigned (or loaded) to each model roadway link.


The I/T adjustment factor of 19 percent was determined by dividing the total limited access VMT

by the total study area VMT for the 2040 Cost Feasible network. By applying this factor to the

VMT for each land use, the reduced VMT is then representative of only the roadways which can

be funded by impact fees.

State Road Adjustment Factor

This variable was used to adjust the vehicle-miles of travel for each land use to reflect the portion

of the trip that occurs on non-state roadway facilities. To determine this adjustment factor of 44

percent, the 2040 VMT distribution was calculated using the CFRPM v6.1 projections. Appendix

C, Table C-2 provides further detail on this calculation.

Cost Component

County Roadway Cost

This section examines the right-of-way (ROW), construction, and other cost components

associated with county roads with respect to transportation capacity expansion improvements

in Flagler County. In addition to local data, bid data for recently completed/ongoing projects and

recent construction data from roadway projects throughout Florida were used to supplement

the cost data for county roadway improvements. The cost for each roadway capacity project was

separated into four components: design, right-of-way (ROW), construction, and construction

engineering/inspection (CEI).

Design and CEI

Design costs for county roads were estimated at 10 percent of construction phase costs based

on a review of recent local cost data and cost data from recent roadway/transportation impact

fee studies throughout Florida. Additional detail is provided in Appendix D, Tables D-2 and D-3.

CEI costs for county roads were estimated at 9 percent of construction phase costs based on a

review of recent local cost data and cost data from recent roadway/transportation impact fee

studies throughout Florida. Additional detail is provided in Appendix D, Tables D-8 and D-9.

Right-of-Way

The ROW cost reflects the total cost of the acquisitions along a corridor that were necessary to

have sufficient cross-section width to widen an existing road or, in the case of new construction,

to build a new road. This factor was determined through a review of the ROW-to-construction

cost ratios for recent and planned improvements in Flagler County:


• Old Kings Rd Ext. from Forest Grove Dr to Matanzas Woods Pkwy

• SR 100 from Old Kings Rd to Belle Terre Pkwy

Due to the small local sample, county and state improvements were reviewed together. The

ROW factors for these two improvements were five (5) percent and 10 percent respectively, with

a weighted average of nine (9) percent. Additionally, an aerial review of the 2045 LRTP

improvements was conducted, which suggested that many of the proposed projects appear to

have ROW already acquired or readily available.

In addition to these local improvements, ROW-to-construction cost factors from recent impact

fee studies throughout Florida were reviewed. For county and state roads, these factors ranged

from 20 to 60 percent, with weighted average of 41 percent (county roads) and 42 percent (state

roads). For purposes of this update study, the ROW cost for county and state roads was

calculated at approximately 10 percent of the construction cost per lane mile. This factor is

consistent with other ROW-to-construction ratios seen in recent local improvements. Additional

detail is provided in Appendix D, Tables D-4 and D-5.

Construction

The construction cost for county roads was based on local improvements in Flagler County and

in other communities in Florida. A review of construction cost data for Flagler County identified

five capacity expansion (lane addition and new road construction) projects:

• Recently completed:

o Old Kings Rd Ext. from Forest Grove Dr to Matanzas Woods Pkwy

• 2045 LRTP Cost Feasible Plan:

o Old Kings Rd from Palm Harbor Village Pkwy to Farnum Ln

o Old Kings Rd from Farnum Ln to Forest Grove Dr

o Old Kings Rd Ext. from Matanzas Woods Pkwy to Old Kings Rd

o Matanzas Woods Pkwy from SR 5 (US 1) to I-95

The recently completed project cost approximately $2.32 million per lane mile while the LRTP

estimates range from $3.70 million per lane mile to $6.48 million per lane mile. Additional

information is provided in Appendix D, Table D-6.

In addition to the local projects, recent improvements from multiple Florida communities were

also reviewed. This review included 37 projects with more than 160 lane miles of urban design

(curb & gutter) roadway improvements from 14 counties and resulted in an average construction


cost of $3.11 million per lane mile. When improvements in counties with suburban/rural

characteristics, such as Flagler County, were reviewed, the data set included 25 improvements,

averaging $2.81 million per lane mile. Appendix D, Table D-7 provides further detail on the

projects reviewed.

Based on a review of these data sets, a construction cost of $2.80 million per lane mile was used

in the impact fee calculations for urban design (curb & gutter) improvements. This cost is

consistent with the recent local improvement and is a conservative estimate when compared to

the cost estimates in the 2045 LRTP Cost Feasible Plan.

To determine the cost per lane mile for county roads with rural‐design characteristics (open

drainage), the relationship between urban and rural roadway costs from the FDOT District 7 Long

Range Estimates (LRE)2 was reviewed. Based on these cost estimates, the costs for roadways

with rural‐design characteristics were estimated at approximately 74 percent of the costs for

roadways with urban‐design characteristics. Additional detail is provided in Appendix D, Table D‐

1.

Table VII-1

Estimated Total Cost per Lane Mile for County Roads

1) Design is estimated at 10% of construction costs 2) Right-of-Way is estimated at 10% of construction costs 3) Source: Estimate based on a review of data in Appendix D, Tables D-6 and D-7 4) CEI is estimated at 9% of construction costs 5) Open drainage costs are estimated at 74% of curb & gutter costs 6) Lane mile distribution (Item 7) multiplied by the individual component costs for curb & gutter

and open drainage roads and added together to develop a weighted average cost per lane-mile 7) Source: Appendix D, Table D-10, Items (c) and (d) Note: All figures rounded to nearest $000

2 This data was not available for FDOT District 5

Curb & Gutter Open Drainage(5) Weighted

Average(6)

Design(1)

$280,000 $207,000 $258,000

Right-of-Way(2)

$280,000 $207,000 $258,000

Construction(3)

$2,800,000 $2,072,000 $2,582,000

CEI(4)

$252,000 $186,000 $232,000

Total Cost $3,612,000 $2,672,000 $3,330,000

Lane Mile Distribution(7) 70% 30% 100%

Cost Phase

Cost per Lane Mile


Vehicle-Miles of Capacity Added per Lane Mile

An additional component of the transportation impact fee equation is the capacity added per

lane-mile of roadway constructed. The vehicle-miles of capacity (VMC) is an estimate of capacity

added per lane mile for county and roadway improvements in the 2045 LRTP. As shown in Table

VII-2, each lane mile will add approximately 12,800 VMC.

Table VII-2

Weighted Average Capacity Added per Lane Mile

1) Source: Appendix D, Table D-10 2) Source: Appendix D, Table D-10 3) Vehicle-miles of capacity added (Item 2) divided by lane miles added (Item 1);

rounded to nearest 100

Cost per Vehicle-Mile of Capacity

The transportation cost per unit of development is assessed based on the cost per vehicle-mile

of capacity. As shown in Tables VII-1 and VII-2, the cost and capacity for county roadways in

Flagler County have been calculated based on typical roadway improvements. As shown in Table

VII-3, the cost for travel within the county is approximately $260 per VMC.

The cost per VMC figure is used in the transportation impact fee calculation to determine the

total cost per unit of development based on vehicle-miles of travel consumed. For each vehicle-

mile of travel that is added to the roadway system, approximately $260 of transportation capacity

is consumed.

Table VII-3

Cost per Vehicle-Mile of Capacity Added

1) Source: Table VII-1 2) Source: Table VII-2 3) Cost per lane mile (Item 1) divided by the average VMC added per lane mile (Item 2)

Road TypeLane Miles

Added(1)

Vehicle-Miles of

Capacity Added(2)

VMC Added per

Lane Mile(3)

County Roads 36.82 469,695 12,800

Road TypeCost per Lane

Mile(1)

Average VMC Added

per Lane Mile(2) Cost per VMC(3)

County Roads $3,330,000 12,800 $260.16


Credit Component

Capital Improvement Credit

The credit component of the impact fee accounts for the County and State funding sources that

are being expended on roadway capacity expansion (excluding impact fee funds). This section

summarizes the calculations utilized to develop the credit component of the impact fee.

Additional details are provided in Appendix E.

The present value of the portion of non-impact fee revenues generated by new development

over a 25-year period (estimated life of a structure as well as when roadways are likely to need

significant maintenance/rehabilitation) that is expected to fund capacity expansion projects was

credited against the cost and the system consumed by travel associated with new development.

In order to provide a connection to the demand component, which is measured in terms of travel,

the non-impact fee dollars were converted to a fuel tax equivalency.

County Credit

Currently, Flagler County dedicates all fuel tax revenue to transportation operations and

maintenance and other non-capacity expansion improvements. Therefore, with no local

contributions to transportation capacity expansion, no county credit is included in the impact fee

calculation.

State Credit

As shown in Table VII-4, state expenditures for transportation capacity projects in Flagler County

were reviewed and a credit for the capacity-expansion portion attributable to county projects

was estimated (excluding expenditures on state and limited access facilities). This review, which

included 10 years of historical expenditures and 5 years of planned expenditures, indicated that

FDOT’s transportation spending averaged $1.45 million per year. These expenditures resulted in

a credit of 2.9 pennies of equivalent gas tax revenue, annually, for county road improvements.

The use of a 15-year period for developing a state credit accounts for the volatility in FDOT

spending in the county over short time periods. Additional detail is provided in Appendix E, Table

E-3.

In summary, a total credit of 2.9 pennies or $1.45 million per year was included in the

transportation impact fee calculation to recognize the future capital revenues (25 years) that are

expected to be generated by new development from all non-impact fee revenue sources. This

credit reflects the most recent available data for transportation expenditures from County and

State sources.


Table VII-4

Equivalent Pennies of Gas Tax Revenue

1) Flagler County does not have any local funding programmed for capacity expansion 2) Source: Appendix E, Table E-2. Only expenditures on county roads are included 3) Source: Appendix E, Table E-1 4) Avg annual expenditures divided by the value per penny (Item 3) divided by 100

Present Worth Variables

Facility Life

The facility life used in the impact fee analysis is 25 years, which represents the reasonable life

of a roadway.

Interest Rate

This is the discount rate at which gasoline tax revenues might be bonded. It is used to compute

the value of the gasoline taxes generated by new development. The discount rate of 2.50 percent

was used in the transportation impact fee calculation based on information provided by the

County.

Fuel Efficiency

The fuel efficiency (i.e., the average miles traveled per gallon of fuel consumed) of the fleet of

motor vehicles was estimated using the quantity of gasoline consumed by travel associated with

a particular land use. This variable is used in the calculation of the credit component of the multi-

modal transportation impact fee.

Appendix E, Table E-4 documents the calculation of fuel efficiency value based on the following

equation, where “VMT” is vehicle miles of travel and “MPG” is fuel efficiency in terms of miles

per gallon.

=

TypeRoadwayTypeVehicle

TypeVehicle

TypeRoadwayMPG

VMTVMTEfficiencyFuel

CreditAverage Annual

Expenditures

Value per

Penny(3)

Equivalent Pennies

per Gallon(4)

County Revenue(1) $0 $501,836 $0.000

State Revenue(2) $1,450,401 $501,836 $0.029

Total $1,450,401 $0.029


The methodology uses non-interstate VMT and average fuel efficiency data for passenger

vehicles (i.e., passenger cars and other 2-axle, 4-tire vehicles, such as vans, pickups, and SUVs)

and large trucks (i.e., single-unit, 2-axle, 6-tire or more trucks and combination trucks) to

calculate the total gallons of fuel used by each of these vehicle types.

The combined total VMT for the vehicle types is then divided by the combined total gallons of

fuel consumed to calculate, in effect, a “weighted” fuel efficiency value that reflects the existing

fleet mix of traffic on non-interstate roadways. The VMT and average fuel efficiency data were

obtained from the most recent Federal Highway Administration’s Highway Statistics 2019. Based

on the calculation completed in Appendix E, Table E-4, the fuel efficiency rate to be used in the

updated impact fee equation is 18.97 miles per gallon.

Effective Days per Year

An effective 365 days per year of operation was used for all land uses in the proposed fee.

However, this will not be the case for all land uses since some uses operate only on weekdays

(e.g., office buildings) and/or only seasonally (e.g., schools). The use of 365 days per year,

therefore, provides a conservative estimate, ensuring that non-impact fee contributions are

adequately credited against the fee.

Calculated Transportation Impact Fee

Detailed impact fee calculations for each land use are included in Appendix F, which includes the

major land use categories and the impact fees for the individual land uses contained in each of

the major categories. For each land use, Appendix F illustrates the following:

• Demand component variables (trip rate, trip length, and percent new trips);

• Total multi-modal impact fee cost;

• Annual capital improvement credit;

• Present value of the capital improvements credit;

• Net transportation impact fee rates;

• Current adopted Flagler County impact fee rates; and

• Percent difference between the calculated impact fee and the current adopted impact

fee.


It should be noted that the net impact fee illustrated in Appendix F is not necessarily a

recommended fee, but instead represents the technically calculated impact fee per unit of land

use that could be charged in Flagler County.

For clarification purposes, it may be useful to walk through the calculation of an impact fee for

one of the land use categories. In the following example, the net impact fee is calculated for the

Single Family land use category (2,000 sq ft) using information from the impact fee schedules

included in Appendix F. For each land use category, the following equations are utilized to

calculate the net impact fee:

Net Impact Fee = Total Impact Cost – Capital Improvement Credit

Where:

Total Impact Cost = ([Trip Rate × Assessable Trip Length × % New Trips] /2) × (1 – Interstate/Toll

Facility Adjustment Factor) × (State Roads Adjustment Factor) x (Cost per Vehicle-Mile of

Capacity)

Capital Improvement Credit = Present Value (Annual Capital Improvement Credit), given 2.50%

interest rate & a 25-year facility life

Annual Capital Improvement Credit = ([Trip Rate × Total Trip Length × % New Trips] / 2) ×

(Effective Days per Year × $/Gallon to Capital) / Fuel Efficiency

Each of the inputs has been discussed previously in this document; however, for purposes of this

example, brief definitions for each input are provided in the following paragraphs, along with the

actual inputs used in the calculation of the fee for the Single Family land use category (2,000 sq

ft):

• Trip Rate = the average daily trip generation rate, in vehicle-trips/day (7.81)

• Assessable Trip Length = the average trip length on collector roads or above, for the

category, in vehicle-miles (7.61)

• Total Trip Length = the assessable trip length plus an adjustment factor of half a mile,

which is added to the trip length to account for the fact that gas taxes are collected for

travel on all roads including local roads (7.61 + 0.50 = 8.11)

• % New Trips = adjustment factor to account for trips that are already on the roadway

(100%)


• Divide by 2 = the total daily miles of travel generated by a particular category (i.e.,

rate*length*% new trips) is divided by two to prevent the double-counting of travel

generated between two land use codes since every trip has an origin and a destination

• Interstate/Toll Facility Adjustment Factor = adjustment factor to account for travel

demand occurring on interstate highways and/or toll facilities (19%)

• State Road Adjustment Factor = used to adjust the VMT for travel occurring on non-state

roads (44%)

• Cost per Lane Mile = unit cost to construct one lane mile of roadway, in $/lane-mile

($3,330,000)

• Average Vehicle-Capacity Added per Lane Mile = represents the average daily traffic on

one travel lane at capacity for one lane mile of roadway, in vehicles/lane-mile/day

(12,800)

• Cost per Vehicle-Mile of Capacity = unit of vehicle-miles of capacity consumed per unit of

development. Cost per vehicle-mile divided by average capacity added per lane mile

• Present Value = calculation of the present value of a uniform series of cash flows, gas tax

payments in this case, given an interest rate, “i,” and a number of periods, “n;” for 2.50%

interest and a 25-year facility life, the uniform series present worth factor is 18.4244

• Effective Days per Year = 365 days

• $/Gallon to Capital = the amount of equivalent gas tax revenue per gallon of fuel that is

used for capital improvements, in $/gallon ($0.029)

• Fuel Efficiency = average fuel efficiency of vehicles, in vehicle-miles/gallon (18.97)

Transportation Impact Fee Calculation

Using these inputs, a net impact fee can be calculated for the Single Family land use category

(2,000 sq ft) as follows:

Single Family (2,000 sq ft) Transportation Impact Fee Rate (Table F-1):

Total Impact Cost = ([7.81 * 7.61 * 1.0] /2) * (1 - 0.19) * (0.44) * ($3,330,000 /12,800) = $2,755

Annual Cap. Improv. Credit = ([7.81 * 8.11 * 1.0] /2) * 365 * ($0.029 /18.97) = $18

Capital Improvement Credit = $18 * 18.4244 = $332

Net Transportation Impact Fee = $2,755 – $332 = $2,423

Table VII-5 presents the calculated transportation impact fee schedule for Flagler County.


Table VII-5

Flagler County Calculated Transportation Impact Fees

Land Use

CodeLand Use Unit

Calculated

Impact Fee(1)

Adopted

Impact Fee

(Suspended)(2)

Percent

Change

RESIDENTIAL:

Single Family (Detached) - Less than 1,500 sf du $2,160 $1,438 50.2%

Single Family (Detached) - 1,501 to 2,499 sf du $2,423 $1,438 68.5%

Single Family (Detached) - 2,500 sf and greater du $2,747 $1,438 91.0%

220 Multi-Family (Low-Rise); 1-2 levels du $1,752 $1,400 25.1%

221 Multi-Family (Mid-Rise); 3-10 levels du $1,296 $1,400 -7.4%

222 Multi-Family (High-Rise); >10 levels du $1,064 $1,400 -24.0%

240 Mobile Home Park du $894 $508 76.0%

253 Congregate Care Facility du $229 n/a n/a

LODGING:

310 Hotel room $987 $837 17.9%

320 Motel room $471 $455 3.5%

RECREATION:

411 Public Park acre $158 $339 -53.4%

416 RV Park site $326 n/a n/a

420 Marina berth $607 n/a n/a

430 Golf Course hole $956 n/a n/a

444 Movie Theater screen $9,441 $6,099 54.8%

492 Health/Fitness Club 1,000 sf $7,158 n/a n/a

INSTITUTIONS:

520 Elementary School (Private) student $207 n/a n/a

522 Middle/Junior High School (Private) student $238 n/a n/a

530 High School (Private) student $258 n/a n/a

540 University/Junior College (7,500 or fewer students) (Private) student $506 n/a n/a

550 University/Junior College (more than 7,500 students) (Private) student $380 n/a n/a

560 Church 1,000 sf $1,045 $785 33.1%

565 Day Care Center 1,000 sf $3,081 $2,850 8.1%

MEDICAL:

610 Hospital 1,000 sf $2,381 $1,618 47.2%

620 Nursing Home bed $302 $148 104.1%

OFFICE:

710 General Office 1,000 sf $2,164 $2,804 -22.8%

714 Corporate Headquarters Building 1,000 sf $1,767 $959 84.3%

720 Medical Office 10,000 sq ft or less 1,000 sf $5,518 $3,606 53.0%

720 Medical Office greater than 10,000 sq ft 1,000 sf $7,913 $3,606 119.4%

RETAIL:

820 Retail/Shopping Center 1,000 sfgla $3,173 $3,473 -8.6%

840/841 New/Used Auto Sales 1,000 sf $3,814 $3,419 11.6%

849 Tire Superstore bay $3,396 $1,792 89.5%

850 Supermarket 1,000 sf $5,206 $4,414 17.9%

851 Convenience Market - 24 hrs 1,000 sf $19,210 $11,145 72.4%

862 Home Improvement Superstore 1,000 sf $1,966 $2,336 -15.8%

880/881 Pharmacy/Drug Store with & without Drive-Thru 1,000 sf $2,914 $1,880 55.0%

890 Furniture Store 1,000 sf $879 $411 113.9%

210


Table VII-5 (continued)

Flagler County Calculated Transportation Impact Fees

1) Source: Table F-1 2) Source: Flagler County Planning & Zoning Department; Fees are currently suspended


A comparison of calculated fee schedule to the current adopted fee by land use is presented in

Table VII-6 for select land uses.

A summary of calculated impact fee rates for all land uses is presented in Appendix F, Table F-1.

Land Use

CodeLand Use Unit

Calculated

Impact Fee(1)

Adopted

Impact Fee

(Suspended)(2)

Percent

Change

SERVICES:

911 Bank/Savings Walk-In 1,000 sf $2,844 $2,951 -3.6%

912 Bank/Savings Drive-In 1,000 sf $4,893 $7,111 -31.2%

931 Quality Restaurant 1,000 sf $8,844 $5,252 68.4%

932 High-Turn Over Restaurant 1,000 sf $10,155 $6,874 47.7%

934 Fast Food Restaurant w/Drive-Thru 1,000 sf $24,081 $14,931 61.3%

941 Quick Lubrication Vehicle Shop bay $4,429 $2,496 77.4%

942 Automobile Care Center 1,000 sf $3,134 $2,400 30.6%

944 Gas Station w/Convenience Market <2,000 sq ft fuel pos. $3,152 n/a n/a

945 Gas Station w/Convenience Market 2,000-2,999 sq ft fuel pos. $3,771 n/a n/a

960 Gas Station w/Convenience Market 3,000+ sq ft fuel pos. $4,234 n/a n/a

n/a Gasoline/Convenience w/Fast Food 1,000 sf $35,300 $17,852 97.7%

INDUSTRIAL:

110 General Light Industrial 1,000 sf $997 $794 25.6%

130 Industrial Park 1,000 sf $686 $1,444 -52.5%

140 Manufacturing 1,000 sf $796 $440 80.9%

150 Warehousing 1,000 sf $346 $560 -38.2%

151 Mini-Warehouse 1,000 sf $197 $279 -29.4%


Table VII-6

Transportation Impact Fee Comparison

1) Represents that portion of the maximum calculated fee for each respective county that is actually charged. Fees may have been lowered through indexing or policy discounts. Does not account for

moratoriums/suspensions 2) du = dwelling unit 3) Source: Appendix F, Table F-1 4) Flagler County Planning and Zoning Department. The transportation impact fee is currently under moratorium 5) Source: Volusia County Growth and Resource Management Department 6) Source: Putnam County Planning and Development Services Department. The transportation impact fee is currently under moratorium 7) Source: St. Johns County Resolution No. 2018-16 8) Source: Seminole County Development Services Department. Fees for the North, East, and West districts are shown. The County is in the process of updating its fees. 9) Source: Marion County Growth Services Department 10) Source: Lake County Planning and Zoning Office. Fees for the Northeast/Wekiva district are shown. 11) Source: City of Palm Coast Community Development Department. Fast Food and Bank land uses are charged “per drive-thru lane.”

Land Use Unit(2)

Flagler

County

Calculated(3)

Flagler

County

Adopted(4)

Volusia

County(5)

Putnam

County(6)

St. Johns

County(7)

Seminole

County

North, East,

West(8)

Marion

County(9)

Lake County

Northeast/

Wekiva(10)

City of Palm

Coast(11)

Date of Last Update 2021 2002 2018 2006 2018 1992 2015 2019 2018

Assessed Portion of Calculated(1)

100% 100% 100% n/a 100%/60% 100% 20% /11% 52% 100%

Residential:

Single Family Detached (2,000 sq ft) du $2,423 $1,438 $5,432 $2,290 $8,927 $705 $1,397 $2,706 $3,139

Non-Residential:

Light Industrial/Manufacturing 1,000 sf $997 $794 $2,040 $1,338 $1,462 $519 $428 $1,728 $1,773

Office (50,000 sq ft) 1,000 sf $2,164 $1,500 $4,020 $2,683 $2,760 $1,545 $676 $2,531 $3,798

Retail (125,000 sq ft) 1,000 sf $3,173 $1,997 $6,450 $1,280 $4,464 $1,821 $1,014 $2,964 $6,936

Bank w/Drive-In 1,000 sf $4,893 $7,111 $9,850 $1,280 $8,526 $5,756 $2,260 $2,213 $12,289

Fast Food w/Drive-Thru 1,000 sf $24,081 $14,931 $47,840 $1,280 $11,529 $9,426 $2,803 $20,537 $23,042

Appendix A

Demand Component -- Population:

Supplemental Information

Tindale Oliver Flagler County June 2021 A-1 Impact Fee Update Study

Appendix A: Population

Except for the transportation impact fee, all impact fee programs included in this report require

the use of population data in calculating current levels of service, performance standards, and

demand and credit calculations. With this in mind, a consistent approach to developing

population estimates and projections is an important component of the data compilation

process. To accurately determine demand for services, not only the residents, or permanent

population of the County, but also the seasonal residents and visitors were considered. Seasonal

residents include visitors and part-time residents, which are defined as living in Flagler County

for less than six months each year. Therefore, for purposes of calculating future demand for

capital facilities for each impact fee program area, the weighted seasonal population will be used

in all population estimates and projections. References to population contained in this report

pertain to the weighted seasonal population, unless otherwise noted.

Service areas of each infrastructure type is as follows:

• Fire rescue: Unincorporated county and cities of Beverly Beach, Bunnell and Marineland.

• EMS: Countywide.

• Law enforcement: Unincorporated county and cities of Beverly Beach, Marineland and

Palm Coast.

• Libraries: Countywide except for Flagler Beach.

• Parks: Countywide parks are provided countywide while neighborhood and community

parks are provided countywide excluding Palm Coast. In the case of parks, permanent

population figures are used to be consistent with the LOS standards included in the

Comprehensive Plan.

Given the differences in services areas, population estimates are provided separately for each

impact fee service area.

Table A-1 presents the weighed seasonal population trends. The projections indicate that the

current weighted seasonal population of the County is approximately 120,200 countywide and is

estimated to increase to 173,900 (increase of 53,700) by 2045. The growth levels varies

depending on the service area.


Table A-1

Weighted Seasonal Population Trends and Projections

1) Source: Appendix A, Table A-18 2) Source: Appendix A, Table A-19 3) Source: Appendix A, Table A-20 4) Source: Appendix A, Table A-21 5) Source: Appendix A, Table A-22

Year Countywide(1) Library

Service Area(2)

Fire Rescue

Service Area(3)

Law

Enforcement

Service Area(4)

Community/

Neighborhood

Parks Service

Area(5)

2000 52,186 46,921 13,109 44,744 18,373

2001 55,760 50,322 13,561 48,128 18,997

2002 60,076 54,254 14,196 52,015 20,014

2003 65,274 59,424 14,512 57,152 20,342

2004 72,436 66,598 14,684 64,329 20,477

2005 80,541 74,733 15,708 72,380 21,445

2006 88,714 83,011 16,107 80,582 21,709

2007 94,878 89,115 18,481 86,765 24,129

2008 97,838 91,965 16,243 89,333 21,991

2009 99,063 93,045 16,589 90,247 22,482

2010 100,750 95,833 18,032 93,096 22,950

2011 101,307 96,398 18,133 93,637 23,070

2012 102,274 97,386 18,254 94,643 23,166

2013 102,994 98,074 18,296 95,329 23,239

2014 104,339 99,403 18,618 96,554 23,574

2015 106,688 101,704 19,084 98,764 24,085

2016 108,522 103,450 19,421 100,463 24,510

2017 110,692 105,570 19,917 102,578 25,053

2018 113,170 108,000 20,475 104,874 25,656

2019 116,460 111,225 21,459 107,876 26,697

2020 120,183 114,960 22,454 111,367 27,669

2021 122,671 117,114 22,594 113,656 27,896

2022 125,209 119,539 23,061 116,009 28,473

2023 127,801 122,013 23,539 118,409 29,063

2024 130,446 124,538 24,026 120,861 29,664

2025 133,159 127,129 24,526 123,374 30,281

2026 135,556 129,417 24,967 125,595 30,826

2027 137,996 131,745 25,416 127,856 31,381

2028 140,480 134,117 25,874 130,157 31,946

2029 143,009 136,531 26,339 132,500 32,520

2030 145,580 138,986 26,813 134,882 33,105

2031 147,648 140,960 27,195 136,798 33,575

2032 149,745 142,962 27,580 138,741 34,053

2033 151,871 144,992 27,972 140,710 34,536

2034 154,028 147,051 28,369 142,710 35,027

2035 156,212 149,137 28,771 144,733 35,524

2036 158,039 150,882 29,109 146,427 35,939

2037 159,889 152,647 29,448 148,140 36,359

2038 161,759 154,433 29,793 149,873 36,784

2039 163,652 156,240 30,142 151,626 37,215

2040 165,580 158,081 30,497 153,413 37,653

2041 167,203 159,631 30,797 154,917 38,023

2042 168,843 161,195 31,097 156,436 38,396

2043 170,497 162,775 31,402 157,968 38,772

2044 172,168 164,370 31,711 159,517 39,151

2045 173,896 166,019 32,029 161,118 39,545


Apportionment of Demand by Residential Unit Type and Size

Tables A-2 through A-6 present the population per housing unit (PPH) for the residential

categories by size for each service area. The tables present the PPH for combined residential

based on weighted seasonal population. In some cases, PPH based on permanent population is

also shown to be used for parks impact fee calculations. This analysis includes all housing units,

both occupied and vacant.

Table A-2

Population per Housing Unit by Housing Type (Countywide)

1) Source: 2019 American Community Survey (ACS); 5-Yr. Estimates, Table B25033, adjusted for seasonal

population 2) Source: 2019 American Community Survey (ACS); 5-Yr. Estimates, Table DP04 3) Ratios developed based on national PPH data derived from the 2019 American Housing Survey 4) Population (Item 1) divided by housing units (Item 2). Single family residential tiers are adjusted by the ratios

developed using the 2019 AHS data (Item 3). 5) Permanent population per housing unit 6) Estimate for congregate care facility is based on people per household figures for single and multi-family

homes, adjusted for the residents over 55 years of age based on information obtained from the 2017 National Household Travel Survey, prepared by the US Department of Transportation

Note: Excludes boats, RVs, vans, etc.

Housing Type Population(1) Housing

Units(2) Ratio(3)

Population/

Housing

Units(4)

Perm.

Population/

Housing

Units(5)

Single Family (detached) 104,206 43,842 2.38 2.26

- Less than 1,500 sf 90% 2.14 2.03

- 1,500 to 2,499 sf 100% 2.38 2.26

- 2,500 sf or greater 112% 2.67 2.53

Multi-Family 6,505 5,391 1.21 1.15

Mobile Home 4,311 2,504 1.72 1.63

Total/Weighted Average 115,022 51,737 2.22 2.11

Congregate Care Facility(6) 84,661 49,233 1.72 1.63


Table A-3

Population per Housing Unit by Housing Type (Library Service Area)

1) Source: 2019 American Community Survey (ACS); 5-Yr. Estimates, Table B25033, adjusted for

seasonal population 2) Source: 2019 American Community Survey (ACS); 5-Yr. Estimates, Table DP04 3) Ratios developed based on national PPH data derived from the 2019 American Housing Survey 4) Population (Item 1) divided by housing units (Item 2). Single family residential tiers are

adjusted by the ratios developed using the 2019 AHS data (Item 3). 5) Estimate for congregate care facility is based on people per household figures for single and

multi-family homes, adjusted for the residents over 55 years of age based on information obtained from the 2017 National Household Travel Survey, prepared by the US Department of Transportation



Units(2) Ratio(3)

Population/

Housing

Units(4)

Single Family (detached) 99,438 40,823 2.44

- Less than 1,500 sf 90% 2.20

- 1,500 to 2,499 sf 100% 2.44

- 2,500 sf or greater 112% 2.73

Multi-Family 5,787 4,551 1.27

Mobile Home 4,218 2,427 1.74

Total/Weighted Average 109,443 47,801 2.29

Congregate Care Facility(5) 80,466 45,374 1.77


Table A-4

Population per Housing Unit by Housing Type (Fire Rescue Service Area)







Units(2) Ratio(3)

Population/

Housing

Units(4)


- Less than 1,500 sf 90% 2.00

- 1,500 to 2,499 sf 100% 2.22

- 2,500 sf or greater 112% 2.49

Multi-Family 1,646 2,112 0.78

Mobile Home 4,315 2,257 1.91




Table A-5

Population per Housing Unit by Housing Type (Law Enforcement Service Area)







Units(2) Ratio(3)

Population/

Housing

Units(4)


- Less than 1,500 sf 90% 2.20

- 1,500 to 2,499 sf 100% 2.44

- 2,500 sf or greater 112% 2.73

Multi-Family 5,362 4,319 1.24

Mobile Home 3,825 2,221 1.72




Table A-6

Population per Housing Unit by Housing Type (Countywide excluding Palm Coast)

1) Source: 2019 American Community Survey (ACS); 5-Yr. Estimates, Table B25033, adjusted for seasonal

population 2) Source: 2019 American Community Survey (ACS); 5-Yr. Estimates, Table DP04 3) Ratios developed based on national PPH data derived from the 2019 American Housing Survey 4) Population (Item 1) divided by housing units (Item 2). Single family residential tiers are adjusted by the ratios

developed using the 2019 AHS data (Item 3). 5) Permanent population divided by housing units 6) Estimate for congregate care facility is based on people per household figures for single and multi-family

homes, adjusted for the residents over 55 years of age based on information obtained from the 2017 National Household Travel Survey, prepared by the US Department of Transportation


Functional Population

Functional population, as used in the impact fee analysis, is a generally accepted methodology

for several impact fee areas and is based on the assumption that demand for certain facilities is

generally proportional to the presence of people at a land use, including residents, employees,

and visitors. It is not enough to simply add resident population to the number of employees,

since the service demand characteristics can vary considerably by type of industry.

Functional population is the equivalent number of people occupying space within a community

on a 24-hour-day, 7-days-a-week basis. A person living and working in the community will have

the functional population coefficient of 1.0. A person living in the community but working

elsewhere may spend only 16 hours per day in the community on weekdays and 24 hours per

day on weekends for a functional population coefficient of 0.76 (128-hour presence divided by

168 hours in one week). A person commuting into the county to work five days per week would

have a functional population coefficient of 0.30 (50-hour presence divided by 168 hours in one

Housing TypePopulation

(Adjusted)(1)

Housing

Units(2) Ratio

(3)

Population/

Housing

Units(4)

Perm.

Population/

Housing

Units(5)

Single Family (detached) 18,322 9,672 1.89 1.80

- Less than 1,500 sf 90% 1.70 1.62

- 1,500 to 2,499 sf 100% 1.89 1.80

- 2,500 sf or greater 112% 2.12 2.02

Multi-Family 2,244 2,952 0.76 0.72

Mobile Home 4,126 2,334 1.77 1.68

Total/Weighted Average 24,692 14,958 1.65 1.57

Congregate Care Facility(6)

15,727 12,624 1.25 1.19


week). Similarly, a person traveling into the community to shop at stores, perhaps averaging 8

hours per week, would have a functional population coefficient of 0.05.

Functional population thus tries to capture the presence of all people within the community,

whether residents, workers, or visitors, to arrive at a total estimate of effective population

needed to be served.

This form of adjusting population to help measure real facility needs replaces the population

approach of merely weighting residents two-thirds and workers one-third (Nelson and Nicholas

1992)3. By estimating the functional and weighted population per unit of land use across all

major land uses in a community, an estimate of the demand for certain facilities and services in

the present and future years can be calculated. The following paragraphs explain how functional

population is calculated for residential and non-residential land uses.

Residential Functional Population

Developing the residential component of functional population is simpler than developing the

non-residential component. It is generally estimated that people spend one-half to three-fourths

of their time at home and the rest of each 24-hour day away from their place of residence. In

developing the residential component of Flagler County’s functional population, an analysis of

the County’s population and employment characteristics was conducted. Tables A-7 and A-8

present this analysis for the County. Based on this analysis, Flagler County residents, on average,

spend 16.8 hours each day at their place of residence. This corresponds to approximately 70

percent of each 24-hour day at their place of residence and the other 30 percent away from

home.

It is important to note that these calculations were reviewed on a countywide basis as well as for

each service. There was no significant change between the estimated residential functional

population coefficient. As such, the countywide figure is utilized for all service areas.

3 Arthur C. Nelson and James C. Nicholas, “Estimating Functional Population for Facility Planning,” Journal of Urban Planning and Development 118(2): 45-58 (1992)


Table A-7

Population & Employment Characteristics

1) Source: Census Transportation Planning Package (CTPP), 2016 2) Source: American Community Survey, 2016 5-Yr Estimates, Table B01003 3) Total workers (Item 1) divided by population (Item 2) 4) Source: American Community Survey, 2016 5-Yr Estimates, Table B01003 5) Total school age population (Item 4) divided by 2010 population (Item 2) 6) Total population (Item 2) less total workers (Item 1) and school age population

(Item 4) 7) Population net of workers and school age population (Item 6) divided by

population (Item 2)

Table A-8

Residential Coefficient for 24-Hour Functional Population

1) Estimated 2) Source: Table A-7 3) Hours at residence (Item 1) multiplied by the percent of population (Item 2) 4) Sum of effective hours (Item 3) 5) Sum of effective hours (Item 4) divided by 24

The resulting percentage from Table A-8 is used in the calculation of the residential coefficient

for the 24-hour functional population. These actual calculations are presented in Tables A-10

through A-12.

Calculation Step Figure

Total workers living in Flagler County(1) 37,312

Total Census Population (2016)(2)102,917

Total workers as a percent of population (3) 36.3%

School age population (5-17 years) (2016)(4) 14,350

School age population as a percent of population (5) 13.9%

Population net of workers and school age population (6) 51,255

Other population as a percent of total population (7)49.8%

Population GroupHours at

Residence(1)

Percent of

Population(2)

Effective

Hours(3)

Workers 13 36.3% 4.7

Students 15 13.9% 2.1

Other 20 49.8% 10.0

Total Hours at Residence(4)16.8

Residential Functional Population Coefficient (5)70.0%


Non-Residential Functional Population

Given the varying characteristics of non-residential land uses, developing the estimates of

functional residents for non-residential land uses is more complicated than developing estimated

functional residents for residential land uses. Nelson and Nicholas originally introduced a

method for estimating functional resident population, which is now widely used in the industry.

This method uses trip generation data from the Institute of Transportation Engineers’ (ITE) Trip

Generation Manual and Tindale Oliver’s Trip Characteristics Database, information of passengers

per vehicle, workers per vehicle, length of time spent at the land use, and other variables.

Specific calculations include:

• Total one-way trips per employee (ITE trips multiplied by 50 percent to avoid double

counting entering and exiting trips as two trips).

• Visitors per impact unit based on occupants per vehicle (trips multiplied by occupants per

vehicle less employees).

• Worker hours per week per impact unit (such as nine worker-hours per day multiplied by

five days in a work week).

• Visitor hours per week per impact unit (visitors multiplied by number of hours per day

times relevant days in a week, such as five for offices and seven for retail shopping).

• Functional population coefficients per employee developed by estimating time spent by

employees and visitors at each land use.

Table A-9 shows the functional population coefficients for residential and non-residential uses in

Flagler County, which are used to estimate the 2020 functional population for each service area

in Tables A-10 through A-12.


Table A-9

General Functional Population Coefficients

Population/

Employment CategoryITE LUC

Employee Hours

In-Place(1)

Trips per

Employee(2)

One-Way Trips

per Employee(3)

Journey-to-Work

Occupants per

Trip(4)

Daily

Occupants per

Trip(5)

Visitors per

Employee(6)

Visitor Hours

per Trip(1) Days per Week(7)

Functional

Population

Coefficient(8)

Population 7.00 0.700

Natural Resources N/A 9.00 3.05 1.53 1.32 1.38 0.09 1.00 7.00 0.379

Construction 110 9.00 3.05 1.53 1.32 1.38 0.09 1.00 5.00 0.271

Manufacturing 140 9.00 2.47 1.24 1.32 1.38 0.07 1.00 5.00 0.270

Transportation, Communication, Utilities 110 9.00 3.05 1.53 1.32 1.38 0.09 1.00 5.00 0.271

Wholesale Trade 150 9.00 5.05 2.53 1.32 1.38 0.15 1.00 5.00 0.272

Retail Trade 820 9.00 48.90 24.45 1.24 1.73 11.98 1.50 7.00 1.124

Finance, Insurance, Real Estate 710 9.00 3.28 1.64 1.24 1.73 0.80 1.00 5.00 0.292

Services(9) N/A 9.00 28.38 14.19 1.24 1.73 6.95 1.00 6.00 0.570

Government(10) 730 9.00 7.45 3.73 1.24 1.73 1.83 1.00 7.00 0.451

(1) Assumed

(2) Trips per employee represents all trips divided by the number of employees and is based on Trip Generation 10th Edition (Institute of Transportation Engineers 2017) as follows:

ITE Code 110 at 3.05 weekday trips per employee, Volume 2 - Industrial Land Uses, page 11



ITE Code 710 at 3.28 weekday trips per employee, Volume 2 Office Land Uses, page 12

ITE Code 730 at 7.45 weekday trips per employee, Volume 2 Office Land Uses, page 180

ITE Code 820 based on blended average of trips by retail center size calculated below, adapted from Volume 2 - Retail Land Uses, page 138.

Trips per retail employee from the following table:

Assumed Sq Ft per Trips per Weighted

Retail Scale Center Size Trip Rate Employee (11)Employee Share Trips

Neighborhood <50k sq.ft. 50 75.05 802 60 45.0% 27.00

Community 50k-250k sq.ft. 250 44.84 975 44 35.0% 15.40

Regional 250k-500k sq.ft. 500 35.92 1,043 37 15.0% 5.55

Super Reg. 500k-1000k sq.ft. 1,000 28.78 676 19 5.0% 0.95

Sum of Weighted Trips/1k sq.ft. 48.90

(3) Trip per employee (Item 2) multiplied by 0.5.

(4) Journey-to-Work Occupants per Trip from 2001 Nationwide Household Travel Survey (FHWA 2001) as follows:

1.32 occupants per Construction, Manufacturing, TCU, and Wholesale trip

1.24 occupants per Retail Trade, FIRE, and Services trip

(5) Daily Occupants per Trip from 2001 Nationwide Household Travel Survey (FHWA 2001) as follows:

1.38 occupants per Construction, Manufacturing, TCU, and Wholesale trip

1.73 occupants per Retail Trade, FIRE, and Services trip

(6) [Daily occupants per trip (Item 5) multiplied by one-way trips per employee (Item 3)] - [(Journey-to-Work occupants per trip (Item 4) multiplied by one-way trips per employee (Item 3)]

(7) Typical number of days per week that indicated industries provide services and relevant government services are available.

(8) Table A-7 for residential and the equation below to determine the Functional Population Coefficient per Employee for all land-use categories except residential includes the following:

(10) Includes Federal Civilian Government, Federal Military Government, and State and Local Government categories.

(11) Square feet per retail employee from the Energy Information Administration from Table B-1 of the Commercial Energy Building Survey, 2003

((Days per Week x Employee Hours in Place) + (Visitors per Employee x Visitor Hours per Trip x Days per Week)

(24 Hours per Day x 7 Days per Week)

(9) Trips per employee for the services category is the average trips per employee for the following service related land use categories: quality restaurant, high-turnover restaurant, supermarket, hotel, motel, elementary school, middle

school, high school, hospital, medical office, and church. Source for the trips per employee figure from ITE, 10th ed., when available, or else derived from the square feet per employee for the appropriate land use category from the

Energy Information Administration from Table B-1 of the Commercial Energy Building Survey, 2003.


Table A-10

Countywide Functional Population (2020)

1) Source: Table A-1 for population and 2020 Woods & Poole for employment data 2) Source: Table A-9 3) Functional population is calculated by multiplying the baseline data (Item 1) multiplied by the functional

resident coefficient (Item 2) 4) The total employment population by category is the sum of the employment figures from the nine

employment categories (e.g., natural resources, construction, etc.) 5) The total functional population is the sum of the residential functional population and the employment

functional population

Population Category

Flagler County

Baseline

Data(1)

Functional

Resident

Coefficient(2)

Functional

Population(3)

2020 Weighted Population 120,183 0.700 84,128

Natural Resources 942 0.379 357

Construction 2,990 0.271 810

Manufacturing 985 0.270 266

Transportation, Communication, and Utilities 2,482 0.271 673

Wholesale Trade 519 0.272 141

Retail Trade 5,413 1.124 6,084

Finance, Insurance, and Real Estate 5,730 0.292 1,673

Services 20,228 0.570 11,530

Government Services 4,117 0.451 1,857

23,391

107,519

Employment Category

Total Employment by Category Population(4)

2020 Total Functional Population(5)


Table A-11

Fire Rescue Service Area Functional Population (2020)

1) Source: Table A-1 for population and 2020 Woods & Poole for employment data (2020 estimates) 2) Source: Table A-9 3) Functional population is calculated by multiplying the baseline data (Item 1) multiplied by the functional




Population Category

Fire Rescue

Service Area

Baseline

Data(1)

Functional

Resident

Coefficient(2)

Functional

Population(3)



Construction 796 0.271 216


Transportation, Communication, and Utilities 281 0.271 76


Retail Trade 719 1.124 808

Finance, Insurance, and Real Estate 683 0.292 199

Services 3,914 0.570 2,231

Government Services 2,428 0.451 1,095

4,996

20,714

Employment Category




Table A-12

Law Enforcement Service Area Functional Population (2020)

1) Source: Table A-1 for population and 2020 Woods & Poole for employment data (2020 estimates) 2) Source: Table A-9 3) Functional population is calculated by multiplying the baseline data (Item 1) multiplied by the functional




Table A-13 presents the County’s annual functional population figures for each service area from

2000 through 2045, based on the 2020 functional population figure from Tables A-10 through A-

12, and the annual population growth rates from the population figures previously presented in

Table A-1.

Population Category

Law Enforcement

Service Area

Baseline Data(1)

Functional

Resident

Coefficient(2)

Functional

Population(3)



Construction 2,365 0.271 641


Transportation, Communication, and Utilities 2,201 0.271 596


Retail Trade 4,872 1.124 5,476

Finance, Insurance, and Real Estate 4,845 0.292 1,415

Services 16,694 0.570 9,516

Government Services 1,366 0.451 616

18,661

96,618

Employment Category




Table A-13

Functional Population (2000 - 2045)

Source: Tables A-10 through A-12 for 2020. Remaining years are based on growth rates of the weighted seasonal population; Table A-1

CountywideFire Rescue

Service Area

Law

Enforcement

Service Area

2000 46,684 12,090 38,763

2001 49,859 12,501 41,709

2002 53,698 13,089 45,087

2003 58,370 13,377 49,551

2004 64,791 13,538 55,794

2005 72,048 14,486 62,768

2006 79,325 14,848 69,861

2007 84,798 17,031 75,240

2008 87,427 14,970 77,497

2009 88,564 15,284 78,272

2010 90,070 16,614 80,777

2011 90,610 16,714 81,262

2012 91,516 16,831 82,156

2013 92,157 16,865 82,731

2014 93,355 17,169 83,807

2015 95,502 17,598 85,735

2016 97,126 17,915 87,193

2017 99,069 18,381 89,024

2018 101,249 18,896 90,983

2019 104,185 19,803 93,622

2020 107,519 20,714 96,618

2021 109,777 20,838 98,647

2022 112,082 21,276 100,719

2023 114,436 21,723 102,834

2024 116,839 22,179 104,994

2025 119,293 22,645 107,199

2026 121,440 23,053 109,129

2027 123,626 23,468 111,093

2028 125,851 23,890 113,093

2029 128,116 24,320 115,129

2030 130,422 24,758 117,201

2031 132,248 25,105 118,842

2032 134,099 25,456 120,506

2033 135,976 25,812 122,193

2034 137,880 26,173 123,904

2035 139,810 26,539 125,639

2036 141,488 26,857 127,147

2037 143,186 27,179 128,673

2038 144,904 27,505 130,217

2039 146,643 27,835 131,780

2040 148,403 28,169 133,361

2041 149,887 28,451 134,695

2042 151,386 28,736 136,042

2043 152,900 29,023 137,402

2044 154,429 29,313 138,776

2045 155,973 29,606 140,164

Year

Functional Population(1)


Functional Residents by Specific Land Use Category

When a wide range of land uses impact services, an estimate of that impact is needed for each

land use. This section presents functional population coefficient estimates by residential and

non-residential land uses.

Residential and Transient Land Uses

As mentioned previously, different functional population coefficients need to be developed for

each impact fee service area to be analyzed. For residential and transient land uses, these

coefficients are displayed in Tables A-14 through A-16. The average number of persons per

housing unit was calculated for the residential categories by size of home. Besides the residential

land uses, Tables A-14 through A-16 also include transient land uses, such as hotels, motels,

congregate care facilities (CCF), and nursing homes. Secondary sources, such as Palm Coast and

the Flagler Beaches and the Florida Department of Elderly Affairs, are used to determine the

occupancy rate for hotels, motels, CCF, and nursing homes.

Non-Residential Land Uses

A similar approach is used to estimate functional residents for non-residential land uses. Table

A-17 presents basic assumptions and calculations, such as trips per unit, trips per employee,

employees per impact unit, one-way trips per impact unit, worker hours, occupants per vehicle

trip, visitors (patrons, etc.) per impact unit, visitor hours per trip, and days per week for non-

residential land uses. The final column shows the estimated functional resident coefficients by

land use. These coefficients by land use create the demand component for the select impact fee

programs and will be used in the calculation of the impact fee per unit for each land use category

in the select impact fee schedules.


Table A-14

Functional Residents for Residential and Transient Land Uses – Countywide


UnitITE LUC(1)

Residents/

Visitors Per

Unit(2)

Occupancy

Rate(3)

Adjusted

Residents Per

Unit(4)

Visitor Hours

at Place(5)

Workers

Per Unit(6)

Work Day

Hours(7)

Days Per

Week(8)

Work Week

Residents Per

Unit(9)

Residential:

- Less than 1,500 sf du 210 2.14 - - - - - - 1.50

- 1,500 to 2,499 sf du 210 2.38 - - - - - - 1.67

- 2,500 sf or greater du 210 2.67 - - - - - - 1.87

Multi-Family du 220/221/222 1.21 - - - - - - 0.85

Mobile Home du 240 1.72 - - - - - - 1.20


Hotel room 310 2.70 57% 1.54 12 0.58 9 7 0.99

Motel room 320 2.70 57% 1.54 12 0.13 9 7 0.82

Congregate Care Facility du 253 1.72 91% 1.57 20 0.48 9 7 1.49

Nursing Home bed 620 1.00 91% 0.91 20 1.05 9 7 1.15

[(Adjusted Residents per Unit X Hours at Place X Days per Week) + (Workers Per Unit X Work Hours Per Day X Days per Week)]


(6) Adapted from ITE Trip Generation Handbook, 10th Edition

(9) For residential this is Residents Per Unit times 0.70. For Transient, Assisted, and Group it is:

(24 Hours per Day X 7 Days per Week)

(1) Land use code from the Institute of Transportation Engineers (ITE) Trip Generation Handbook, 10th Edition

(2) Estimates for the single family, multi-family, mobile home, and congregate care facility land use from Table A-2; estimates for the hotel/motel land use is based on data obtained from

Smith Travel Research (STR), Inc. for Palm Coast and the Flagler Beaches; and the estimate used for nursing home is based on 1 person per bed.

(3) Source for hotel/motel occupancy: STR Inc., for Palm Coast and the Flagler Beaches. Average hotel/motel occupancy rate for 2017 through 2019. Source for nursing home occupancy

rate is the Florida Department of Elderly Affairs, Flagler County Profile. Average occupancy rate for 2017 and 2018.

(4) Residents per unit times occupancy rate (Item 3)

(5), (7), (8) Estimated


Table A-15

Functional Residents for Residential and Transient Land Uses – Fire Rescue Service Area


UnitITE LUC

(1)

Residents/

Visitors Per

Unit(2)

Occupancy

Rate(3)

Adjusted

Residents Per

Unit(4)

Visitor Hours

at Place(5)

Workers

Per Unit(6)

Work Day

Hours(7)

Days Per

Week(8)

Work Week

Residents Per

Unit(9)

Residential:

- Less than 1,500 sf du 210 2.00 - - - - - - 1.40

- 1,500 to 2,499 sf du 210 2.22 - - - - - - 1.55

- 2,500 sf or greater du 210 2.49 - - - - - - 1.74

Multi-Family du 220/221/222 0.78 - - - - - - 0.55

Mobile Home du 240 1.91 - - - - - - 1.34


Hotel room 310 2.70 57% 1.54 12 0.58 9 7 0.99

Motel room 320 2.70 57% 1.54 12 0.13 9 7 0.82


Nursing Home bed 620 1.00 91% 0.91 20 1.05 9 7 1.15








(3) Source for hotel/motel occupancy: STR, Inc. for Palm Coast and the Flagler Beaches. Average hotel/motel occupancy rate for 2017 through 2019. Source for nursing home occupancy



(5), (7), (8) Estimated



Table A-16

Functional Residents for Residential and Transient Land Uses – Law Enforcement Service Area


UnitITE LUC(1)

Residents/

Visitors Per

Unit(2)

Occupancy

Rate(3)

Adjusted

Residents Per

Unit(4)

Visitor Hours

at Place(5)

Workers

Per Unit(6)

Work Day

Hours(7)

Days Per

Week(8)

Work Week

Residents Per

Unit(9)

Residential:

- Less than 1,500 sf du 210 2.20 - - - - - - 1.54

- 1,500 to 2,499 sf du 210 2.44 - - - - - - 1.71

- 2,500 sf or greater du 210 2.73 - - - - - - 1.91

Multi-Family du 220/221/222 1.24 - - - - - - 0.87

Mobile Home du 240 1.72 - - - - - - 1.20


Hotel room 310 2.70 57% 1.54 12 0.58 9 7 0.99

Motel room 320 2.70 57% 1.54 12 0.13 9 7 0.82


Nursing Home bed 620 1.00 91% 0.91 20 1.05 9 7 1.15







(3) Source for hotel/motel occupancy: STR, Inc. for Palm Coast and the Flagler Beaches. Average hotel/motel occupancy rate for 2017 through 2019. Source for nursing home occupancy



(5), (7), (8) Estimated




Table A-17

Functional Resident Coefficients for Non-Residential Land Uses

ITE

LUC(1) Land Use Impact Unit Trips Per

Unit(2)

Trips Per

Employee(3)

Employees

Per Unit(4)

One-Way

Factor @

50%(5)

Worker

Hours(6)

Occupants

Per Trip(7) Visitors(8)Visitor Hours

Per Trip(9)

Days Per

Week(10)

Functional

Resident

Coefficient(11)

RECREATIONAL:

411 Public Park acre 0.78 59.53 0.01 0.39 9 1.87 0.72 1.50 7 0.05

416 RV Park site 1.62 N/A 1.20 0.81 9 1.87 0.31 1.50 7 0.47

420 Marina berth 2.41 20.52 0.12 1.21 9 1.87 2.14 1.00 7 0.13

430 Golf Course hole 30.38 20.52 1.48 15.19 9 1.87 26.93 0.25 7 0.84

444 Movie Theater screen 114.83 53.12 2.16 57.42 9 1.87 105.22 1.00 7 5.19

492 Health/Fitness Club 1,000 sf 34.50 27.25 1.27 17.25 9 1.87 30.99 1.50 7 2.41

INSTITUTIONAL:

520 Elementary School (Private) student 1.89 21.00 0.09 0.95 9 1.11 0.96 2.00 5 0.08

522 Middle/Jr High School (Private) student 2.13 25.15 0.08 1.07 9 1.11 1.11 2.00 5 0.09

530 High School (Private) student 2.03 22.25 0.09 1.02 9 1.11 1.04 2.00 5 0.09

540 University/Jr College, <7,500 students (Private) student 2.00 11.75 0.17 1.00 9 1.11 0.94 2.00 5 0.10

550 University/Jr College, >7,500 students (Private) student 1.50 11.75 0.13 0.75 9 1.11 0.70 2.00 5 0.08

560 Church 1,000 sf 6.95 20.64 0.34 3.48 9 1.79 5.89 1.00 7 0.37

565 Day Care Center 1,000 sf 49.63 21.38 2.32 24.82 9 1.79 42.11 0.15 5 0.81

MEDICAL:

610 Hospital 1,000 sf 10.72 3.79 2.83 5.36 9 1.54 5.42 1.00 7 1.29

OFFICE:

710 Office 1,000 sf 9.74 3.28 2.97 4.87 9 1.27 3.21 1.00 5 0.89

714 Corporate Headquarters Building 1,000 sf 7.95 2.31 3.44 3.98 9 1.27 1.61 1.00 5 0.97

Medical Office (<10,000 sf) 1,000 sf 23.83 8.70 2.74 11.92 9 1.54 15.62 1.00 5 1.20

Medical Office (>10,000 sf) 1,000 sf 34.12 8.70 3.92 17.06 9 1.54 22.35 1.00 5 1.72

RETAIL:

820 Retail/Shopping Center 1,000 sfgla 37.75 16.11 2.34 18.88 9 1.72 30.13 0.50 7 1.51

840/841 New/Used Auto Sales 1,000 sf 24.58 11.84 2.08 12.29 9 1.72 19.06 1.00 7 1.57

849 Tire Superstore bay 30.55 N/A 3.07 15.28 9 1.72 23.21 1.00 7 2.12

850 Supermarket 1,000 sf 106.64 75.01 1.42 53.32 9 1.72 90.29 0.50 7 2.41

851 Convenience Market - 24 hrs 1,000 sf 739.50 250.00 2.96 369.75 9 1.72 633.01 0.20 7 6.39

862 Home Improvement Superstore 1,000 sf 30.74 n/a 2.50 15.37 9 1.72 23.94 1.00 7 1.94

880/881 Pharmacy/Drug Store with or w/o Drive-Thru 1,000 sf 104.37 69.17 1.51 52.19 9 1.72 88.26 0.35 7 1.85

890 Furniture Store 1,000 sf 6.30 10.93 0.58 3.15 9 1.72 4.84 0.50 7 0.32

SERVICES:

911 Bank/Savings Walk-In 1,000 sf 59.39 47.11 1.26 29.70 9 1.72 49.82 0.35 6 1.03

912 Bank/Savings w/Drive-In 1,000 sf 102.66 31.79 3.23 51.33 9 1.72 85.06 0.15 6 1.49

931 Quality Restaurant 1,000 sf 86.03 17.90 4.81 43.02 9 2.32 95.00 1.00 7 5.76

932 High-Turnover (Sit-Down) Restaurant 1,000 sf 106.26 21.26 5.00 53.13 9 2.32 118.26 0.75 7 5.57

934 Fast Food Restaurant w/Drive-Thru 1,000 sf 482.53 45.49 10.61 241.27 9 2.32 549.14 0.25 7 9.70

941 Quick Lubrication Vehicle Shop bay 40.00 16.00 2.50 20.00 9 1.72 31.90 0.50 7 1.60

942 Automobile Care Center 1,000 sf 28.19 14.30 1.97 14.10 9 1.72 22.28 1.00 7 1.67

944 Gas Station w/Convenience Market <2,000 sq ft fuel pos. 172.01 275.78 0.62 86.01 9 1.72 147.32 0.20 7 1.46

945 Gas Station w/Convenience Market 2,000-2,999 sq ft fuel pos. 205.36 243.86 0.84 102.68 9 1.72 175.77 0.20 7 1.78

960 Gas Station w/Convenience Market 3,000+ sq ft fuel pos. 230.52 230.91 1.00 115.26 9 1.72 197.25 0.20 7 2.02

n/a Gasoline/Convenience w/Fast Food 1,000 sf 984.59 N/A 2.50 492.30 9 1.72 844.26 0.20 7 7.97

720


Table A-17 (Continued)

Functional Resident Coefficients for Non-Residential Land Uses

ITE

LUC(1) Land Use Impact Unit

Trips Per

Unit(2)

Trips Per

Employee(3)

Employees

Per Unit(4)

One-Way

Factor @

50%(5)

Worker

Hours(6)

Occupants

Per Trip(7) Visitors(8)

Visitor Hours

Per Trip(9)

Days Per

Week(10)

Functional

Resident

Coefficient(11)

INDUSTRIAL:

110 General Light Industrial 1,000 sf 4.96 3.05 1.63 2.48 9 1.46 1.99 1.00 5 0.50

130 Industrial Park 1,000 sf 3.37 2.91 1.16 1.69 9 1.46 1.31 1.00 5 0.35

140 Manufacturing 1,000 sf 3.93 2.47 1.59 1.97 9 1.46 1.29 1.00 5 0.46

150 Warehouse 1,000 sf 1.74 5.05 0.34 0.87 9 1.46 0.93 0.75 5 0.11

151 Mini-Warehoue 1,000 sf 1.49 61.90 0.02 0.75 9 1.46 1.08 0.75 7 0.04

Sources:

(1) Land use code found in the Institute of Transportation Engineers (ITE) Trip Generation Handbook, 10th Edition

(2) Land uses and trip generation rates consistent with those included in the Transportation Impact Fee Update Study

(3) Trips per employee from ITE Trip Generation Handbook, 10th Edition, when available

(4) Trips per impact unit divided by trips per person (usually employee). When trips per person are not available, the employees per unit is estimated.

(5) Trips per unit (Item 2) multiplied by 50 percent

(6), (9), (10) Estimated

(7) Nationwide Personal Transportation Survey

(8) [(One-way Trips/Unit X Occupants/Trip) - Employees].

(11) [(Workers X Hours/Day X Days/Week) + (Visitors X Hours/Visit X Days/Week)]/(24 Hours x 7 Days)


Table A-18

Weighted Seasonal Population Projections Countywide

1) Source: 2000 through 2020 is the U.S. Census and the Bureau of Economic and Business Research (BEBR). 2) Source: Seasonal population is estimated by multiplying permanent population (Item 1) by the ratio of seasonal to

permanent population from the 2000 U.S. Census for years 2001-2009 and the 2010 U.S. Census for years 2011-2045. The figures are weighed by 0.42 to account for seasonal residents residing in the county for a portion of the year (assume 5 months; 5 months divided by 12 months = 0.42).

3) Sum of permanent population (Item 1) and seasonal population (Item 2)

YearPermanent

Population(1)

Seasonal

Population(2)

Total Weighted

Season Population(3)

2000 49,832 2,354 52,186

2001 53,248 2,512 55,760

2002 57,370 2,706 60,076

2003 62,333 2,941 65,274

2004 69,173 3,263 72,436

2005 76,912 3,629 80,541

2006 84,717 3,997 88,714

2007 90,604 4,274 94,878

2008 93,430 4,408 97,838

2009 94,600 4,463 99,063

2010 95,696 5,054 100,750

2011 96,241 5,066 101,307

2012 97,160 5,114 102,274

2013 97,843 5,151 102,994

2014 99,121 5,218 104,339

2015 101,353 5,335 106,688

2016 103,095 5,427 108,522

2017 105,157 5,535 110,692

2018 107,511 5,659 113,170

2019 110,635 5,825 116,460

2020 114,173 6,010 120,183

2021 116,536 6,135 122,671

2022 118,948 6,261 125,209

2023 121,410 6,391 127,801

2024 123,923 6,523 130,446

2025 126,500 6,659 133,159

2026 128,777 6,779 135,556

2027 131,095 6,901 137,996

2028 133,455 7,025 140,480

2029 135,857 7,152 143,009

2030 138,300 7,280 145,580

2031 140,264 7,384 147,648

2032 142,256 7,489 149,745

2033 144,276 7,595 151,871

2034 146,325 7,703 154,028

2035 148,400 7,812 156,212

2036 150,136 7,903 158,039

2037 151,893 7,996 159,889

2038 153,670 8,089 161,759

2039 155,468 8,184 163,652

2040 157,300 8,280 165,580

2041 158,842 8,361 167,203

2042 160,399 8,444 168,843

2043 161,971 8,526 170,497

2044 163,558 8,610 172,168

2045 165,200 8,696 173,896


Table A-19

Weighted Seasonal Population Projections Library Service Area


permanent population from the 2000 U.S. Census for years 2001-2009 and the 2010 U.S. Census for years 2011-2045. The figures are weighed by 0.42 to account for seasonal residents residing in the service area for a portion of the year (assume 5 months; 5 months divided by 12 months = 0.42).


YearPermanent

Population(1)

Seasonal

Population(2)

Total Weighted


2000 44,954 1,967 46,921

2001 48,209 2,113 50,322

2002 51,976 2,278 54,254

2003 56,929 2,495 59,424

2004 63,802 2,796 66,598

2005 71,596 3,137 74,733

2006 79,527 3,484 83,011

2007 85,374 3,741 89,115

2008 88,105 3,860 91,965

2009 89,139 3,906 93,045

2010 91,272 4,561 95,833

2011 91,797 4,601 96,398

2012 92,738 4,648 97,386

2013 93,393 4,681 98,074

2014 94,659 4,744 99,403

2015 96,850 4,854 101,704

2016 98,513 4,937 103,450

2017 100,532 5,038 105,570

2018 102,845 5,155 108,000

2019 105,916 5,309 111,225

2020 109,473 5,487 114,960

2021 111,525 5,589 117,114

2022 113,833 5,706 119,539

2023 116,189 5,824 122,013

2024 118,594 5,944 124,538

2025 121,061 6,068 127,129

2026 123,240 6,177 129,417

2027 125,458 6,287 131,745

2028 127,716 6,401 134,117

2029 130,015 6,516 136,531

2030 132,353 6,633 138,986

2031 134,233 6,727 140,960

2032 136,139 6,823 142,962

2033 138,072 6,920 144,992

2034 140,033 7,018 147,051

2035 142,019 7,118 149,137

2036 143,680 7,202 150,882

2037 145,362 7,285 152,647

2038 147,062 7,371 154,433

2039 148,783 7,457 156,240

2040 150,536 7,545 158,081

2041 152,012 7,619 159,631

2042 153,502 7,693 161,195

2043 155,006 7,769 162,775

2044 156,525 7,845 164,370

2045 158,096 7,923 166,019


Table A-20

Weighted Seasonal Population Projections Fire Rescue Service Area


permanent population from the 2000 U.S. Census for years 2001-2009 and the 2010 U.S. Census for years 2011-2045. The figures are weighed by 0.42 to account for seasonal residents residing in the service area for a portion of the year (assume 5 months; 5 months divided by 12 months = 0.42).


YearPermanent

Population(1)

Seasonal

Population(2)

Total Weighted


2000 12,222 887 13,109

2001 12,641 920 13,561

2002 13,233 963 14,196

2003 13,528 984 14,512

2004 13,687 997 14,684

2005 14,642 1,066 15,708

2006 15,014 1,093 16,107

2007 17,227 1,254 18,481

2008 15,141 1,102 16,243

2009 15,464 1,125 16,589

2010 16,092 1,940 18,032

2011 16,180 1,953 18,133

2012 16,288 1,966 18,254

2013 16,325 1,971 18,296

2014 16,613 2,005 18,618

2015 17,029 2,055 19,084

2016 17,329 2,092 19,421

2017 17,772 2,145 19,917

2018 18,270 2,205 20,475

2019 19,148 2,311 21,459

2020 20,036 2,418 22,454

2021 20,161 2,433 22,594

2022 20,578 2,483 23,061

2023 21,004 2,535 23,539

2024 21,439 2,587 24,026

2025 21,885 2,641 24,526

2026 22,278 2,689 24,967

2027 22,679 2,737 25,416

2028 23,088 2,786 25,874

2029 23,503 2,836 26,339

2030 23,926 2,887 26,813

2031 24,266 2,929 27,195

2032 24,610 2,970 27,580

2033 24,960 3,012 27,972

2034 25,314 3,055 28,369

2035 25,673 3,098 28,771

2036 25,974 3,135 29,109

2037 26,277 3,171 29,448

2038 26,585 3,208 29,793

2039 26,896 3,246 30,142

2040 27,213 3,284 30,497

2041 27,480 3,317 30,797

2042 27,749 3,348 31,097

2043 28,021 3,381 31,402

2044 28,296 3,415 31,711

2045 28,580 3,449 32,029


Table A-21

Weighted Seasonal Population Projections Law Enforcement Area

1) Source: 2000 through 2020 is the U.S. Census and the Bureau of Economic and Business Research (BEBR). 2) Source: Seasonal population is estimated by multiplying permanent population (Item 1) by the ratio of seasonal

to permanent population from the 2000 U.S. Census for years 2001-2009 and the 2010 U.S. Census for years 2011-2045. The figures are weighed by 0.42 to account for seasonal residents residing in the service area for a portion of the year (assume 5 months; 5 months divided by 12 months = 0.42)


YearPermanent

Population(1)

Seasonal

Population(2)

Total Weighted


2000 42,832 1,912 44,744

2001 46,071 2,057 48,128

2002 49,791 2,224 52,015

2003 54,709 2,443 57,152

2004 61,579 2,750 64,329

2005 69,286 3,094 72,380

2006 77,137 3,445 80,582

2007 83,056 3,709 86,765

2008 85,514 3,819 89,333

2009 86,389 3,858 90,247

2010 88,596 4,500 93,096

2011 89,097 4,540 93,637

2012 90,053 4,590 94,643

2013 90,707 4,622 95,329

2014 91,872 4,682 96,554

2015 93,975 4,789 98,764

2016 95,592 4,871 100,463

2017 97,605 4,973 102,578

2018 99,789 5,085 104,874

2019 102,645 5,231 107,876

2020 105,966 5,401 111,367

2021 108,145 5,511 113,656

2022 110,384 5,625 116,009

2023 112,668 5,741 118,409

2024 115,001 5,860 120,861

2025 117,392 5,982 123,374

2026 119,505 6,090 125,595

2027 121,656 6,200 127,856

2028 123,846 6,311 130,157

2029 126,075 6,425 132,500

2030 128,342 6,540 134,882

2031 130,165 6,633 136,798

2032 132,014 6,727 138,741

2033 133,888 6,822 140,710

2034 135,790 6,920 142,710

2035 137,715 7,018 144,733

2036 139,326 7,101 146,427

2037 140,957 7,183 148,140

2038 142,606 7,267 149,873

2039 144,274 7,352 151,626

2040 145,974 7,439 153,413

2041 147,405 7,512 154,917

2042 148,850 7,586 156,436

2043 150,309 7,659 157,968

2044 151,782 7,735 159,517

2045 153,306 7,812 161,118


Table A-22

Weighted Seasonal Population Projections

Countywide Excluding Palm Coast

1) Source: 2000 through 2020 is the U.S. Census and the Bureau of Economic and Business Research (BEBR). 2) Seasonal population is estimated by multiplying permanent population (Item 1) by the ratio of seasonal to permanent

population from the 2000 U.S. Census for years 2001-2009 and the 2010 U.S. Census for years 2011-2045. The figures are weighed by 0.42 to account for seasonal residents residing in the service area for a portion of the year (assume 5 months; 5 months divided by 12 months = 0.42).


YearPermanent

Population(1)

Seasonal

Population(2)

Total

Weighted

Season

Population(3)

2000 17,100 1,273 18,373

2001 17,680 1,317 18,997

2002 18,627 1,387 20,014

2003 18,932 1,410 20,342

2004 19,058 1,419 20,477

2005 19,959 1,486 21,445

2006 20,204 1,505 21,709

2007 22,457 1,672 24,129

2008 20,466 1,525 21,991

2009 20,924 1,558 22,482

2010 20,516 2,434 22,950

2011 20,624 2,446 23,070

2012 20,710 2,456 23,166

2013 20,775 2,464 23,239

2014 21,075 2,499 23,574

2015 21,532 2,553 24,085

2016 21,911 2,599 24,510

2017 22,397 2,656 25,053

2018 22,936 2,720 25,656

2019 23,867 2,830 26,697

2020 24,736 2,933 27,669

2021 24,939 2,957 27,896

2022 25,455 3,018 28,473

2023 25,982 3,081 29,063

2024 26,520 3,144 29,664

2025 27,071 3,210 30,281

2026 27,558 3,268 30,826

2027 28,054 3,327 31,381

2028 28,559 3,387 31,946

2029 29,073 3,447 32,520

2030 29,596 3,509 33,105

2031 30,016 3,559 33,575

2032 30,443 3,610 34,053

2033 30,875 3,661 34,536

2034 31,314 3,713 35,027

2035 31,758 3,766 35,524

2036 32,129 3,810 35,939

2037 32,505 3,854 36,359

2038 32,885 3,899 36,784

2039 33,270 3,945 37,215

2040 33,662 3,991 37,653

2041 33,992 4,031 38,023

2042 34,325 4,071 38,396

2043 34,662 4,110 38,772

2044 35,001 4,150 39,151

2045 35,353 4,192 39,545

Appendix B

Cost Component -- Building and Land Values

Supplemental Information

Tindale Oliver Flagler County June 2021 B-1 Impact Fee Update Study

Appendix B: Building and Land Values

This Appendix provides a summary of building and land value estimates for fire rescue/EMS, law

enforcement, public buildings, libraries, and parks and recreation impact fees. Information

related to cost estimates for transportation is included in Appendix D.

Building Values

To estimate building and recreational facility value, the following information was reviewed:

• Recent construction by Flagler County, as applicable;

• Cost estimates for future facilities;

• Insurance values of existing facilities;

• Data from other jurisdictions; and

• Discussions with the representatives from Flagler County.

The following paragraphs provide a summary for each service area.

Fire Rescue/EMS Facilities

Fire rescue/EMS facilities include fire stations and support buildings, such as the burn building.

Each type of building has varying costs depending on the design and amenities. As part of the

cost estimates the following was considered:

• The County has not built any new fire stations or other related buildings over the past five

years and there are no estimates available for future buildings.

• The insured values of the fire stations average approximately $80 per square foot while

the burn building is insured for $115 per square foot.

• Station cost data from other jurisdictions ranged from $250 per square foot to $465 per

square foot.

• Discussions with the County representatives suggested that future prototype facilities will

be different than existing facilities and an average cost of $300 per square foot is

representative of what the County is likely to spend for station construction in the future.

Given this information an average value of $300 per square foot is used for stations and $150 per

square foot for support buildings.


Law Enforcement Facilities

For law enforcement building cost estimates, the following analysis was completed:

• Within the past five years, Flagler County purchased an existing building and renovated it

for $200 per square foot.

• The new Sheriff’s Operations Center is estimated to cost $300 per square foot.

• The insurance values of existing buildings averaged $130 per square foot. Insurance

values are considered to be a conservative estimate since insurance companies do not

need to insure certain parts of the building, such as the foundation, etc.

• Tindale Oliver supplemented the local data with cost estimates utilized in recently

completed law enforcement impact fee studies. This analysis reviewed data from studies

conducted between 2015 and 2020, which ranged from $200 per square foot to $350 per

square foot for building cost only.

Given this information, building cost is estimated to cost $300 per square foot for the new

Operations Center and $250 per square foot for the substations and the Training/Evidence

Storage Building.

Public Buildings

For public buildings cost estimates, the following analysis was completed:

• Within the past five years, Flagler County did not build any new public buildings and there

are no plans to build a new facility over the next five years.

• The insurance values of existing buildings averaged $260 per square foot. Insurance

values are considered to be a conservative estimate since insurance companies do not

need to insure certain parts of the building, such as the foundation, etc.


completed law enforcement impact fee studies. This analysis reviewed data from studies

conducted between 2015 and 2019, which ranged from $250 per square foot to $325 per

square foot for building cost only.

Given this information, building cost is estimated to cost $300 per square foot for public buildings

and $100,000 per tower site.

Libraries

The following analysis was conducted for library cost estimates:

• Flagler County has not built any new libraries over the past five years.


• The estimate for the new proposed Southern Library is $300 per square foot.

• The insurance values of the existing libraries averaged $215 per square foot. Insurance

values tend to be conservative estimates because insurance companies exclude the value

of the foundation and other more permanent parts of the structure since they would not

have to be rebuilt if the structure was damaged or lost.


completed library impact fee studies. This analysis reviewed data from studies conducted

between 2014 and 2020, which ranged from $230 per square foot to $370 per square foot

for building construction only.

Given this information, library building cost is estimated at $300 per square foot for impact fee

calculation purposes.

Recreational Facilities

Similar to other facilities, recreational facility values are based on the following:

• Construction cost of recently built facilities;

• Insurance values of existing facilities;

• Facility values obtained from other jurisdictions; and

• Discussions with the County representatives.

The resulting estimates are presented in Table VI-4, earlier in this report.

Land Values

For each impact fee program area, land values were determined based on the following analysis,

as data available:

• Recent land purchases or appraisals/estimates for future purchases for the related

infrastructure (if any);

• Land value of current inventory as reported by the Flagler County Property Appraiser

(FCPA);

• Value of vacant land by size and by land use;

• Vacant land sales between 2017 and 2020 by size and by land use; and

• Discussions with the County representatives.

Fire Rescue/EMS

The following was considered in estimating the land value for fire rescue/EMS buildings:


• The County recently purchased a site for the next fire station at a cost of $18,000 per acre.

• The value of parcels where current stations are located averages $24,000 per acre, with

a range of $10,000 per acre to $122,000 per acre. Property Appraiser land value estimates

for governmental entities tend to be on the low end since these properties are not subject

to property tax and the values are not always updated to reflect the market conditions.

• Vacant land sales of similarly sized parcels within the fire rescue service area (up to 5 acres)

between 2017 and 2020 averaged $68,000 per acre with a median value of $27,000 per

acre for all vacant land use types. These prices were higher for commercial properties,

with an average of $214,000 per acre and a median value of $194,000 per acre.

• Similarly, the value of vacant land reported by the Property Appraiser averaged $64,000

per acre with a median value of $66,000 per acre for all vacant properties. For commercial

properties, the average value is estimated at $71,000 per acre with a median value of

$56,000 per acre.

Given this information, an average land value of $20,000 per acre is determined to be a

reasonable estimate for fire rescue/EMS impact fee calculation purposes.

Law Enforcement

The land value estimate for law enforcement facilities is based on the following:

• The County recently purchased a parcel for the New Operations Building at a cost of

approximately $65,400 per acre.

• The value of parcels where current law enforcement buildings are located averages

$64,000 per acre, with a range of $7,000 per acre to $436,000 per acre. Property

Appraiser land value estimates for governmental entities tend to be on the low end since

these properties are not subject to property tax and the values are not always updated to

reflect the market conditions.

• Vacant land sales of similarly sized parcels within the law enforcement service area

(between one acre and 40 acres) between 2017 and 2020 averaged $83,000 per acre with

a median value of $27,000 per acre for all vacant land use types. These prices were higher

for commercial properties, with an average of $139,000 per acre and a median value of

$146,000 per acre.


per acre with a median value of $34,000 per acre for all vacant properties. For commercial

properties, the average value is estimated at $50,000 per acre with a median value of

$47,000 per acre.


Given this information and based on discussions with representatives from Flagler County, an

average land value of $65,000 per acre is determined to be a reasonable estimate for law

enforcement impact fee calculation purposes.

Public Buildings

The land value estimate for public buildings is based on the following:

• There were no recent purchases or estimates for upcoming purchases.

• The value of parcels where current public buildings are located averages $22,000 per acre,

with a range of $13,000 per acre to $274,000 per acre. Property Appraiser land value

estimates for governmental entities tend to be on the low end since these properties are

not subject to property tax and the values are not always updated to reflect the market

conditions.

• Vacant land sales of similarly sized parcels countywide between 2017 and 2020 averaged

$76,000 per acre with a median value of $42,000 per acre for all vacant land use types.


per acre with a median value of $54,000 per acre for all vacant properties.


average land value of $65,000 per acre is determined to be a reasonable estimate for public

buildings impact fee calculation purposes.

Libraries

The land value estimate for libraries is based on the following:

• Estimated cost of an upcoming purchase is $70,000 per acre.

• Value of land where existing libraries are located averages $143,000 per acre, with a range

of $142,000 per acre to $184,000 per acre. As mentioned previously, Property Appraiser

land value estimates for governmental entities tend to be on the low end since these

properties are not subject to property tax and the values are not always updated to reflect

the market conditions.

• Vacant land sales of similarly sized parcels (up to 5 acres) between 2017 and 2020 averaged

$102,000 per acre with a median value of $76,000 per acre for all vacant land use types.


per acre with a median value of $56,000 per acre for all vacant properties.



average land value of $70,000 per acre is determined to be a reasonable estimate for library

impact fee calculation purposes.

Parks

The park land value estimate is based on the following:

• There were no recent land purchases and there are no estimates for upcoming purchases.

• The value of parcels where current parks are located averaged $19,000 per acre for active

parks an $3,000 per acre for passive parks.

• Vacant land sales of similarly sized parcels (up to 100 acres) between 2017 and 2020

ranged from $17,000 per acre to $150,000 per acre in unincorporated county for all vacant

land use types, with a median price of $42,000 per acre.

• Similarly, the value of vacant land reported by the Property Appraiser ranged from $13,000

per acre to $115,000 per acre with a median value of $54,000 per acre.

Given this information, an average land value of $25,000 per acre is determined to be a

reasonable estimate for active park land and $5,000 for acre for passive park land for impact fee

calculation purposes.

Appendix C

Transportation Impact Fee:

Demand Component

Tindale Oliver Flagler County June 2021 C-1 Impact Fee Update Study

Appendix C: TIF - Demand Component

This appendix presents the detailed calculations for the demand component of the

transportation impact fee update.

Interstate & Toll Facility Adjustment Factor

Table C-1 presents the interstate and toll facility adjustment factor used in the calculation of the

transportation impact fee. This variable is based on data from the Central Florida Regional

Planning Model (CFRPM) v6.1 model, specifically the 2040 vehicle-miles of travel. It should be

noted that this adjustment factor excludes all external-to-external trips, which represent traffic

that goes through the study area, but does not necessarily stop in the study area. This traffic is

excluded from the analysis since it does not come from development within the county. The I/T

adjustment factor is used to reduce the VMT that the transportation impact fee charges for each

land use.

Table C-1

Interstate/Toll Facility Adjustment Factor

Source: CFRPM v6.1, 2040 Cost Feasible Plan

State Roads Adjustment Factor

Table C-2 presents the VMT adjustment factor for non-state roads used in the calculation of the

transportation impact fee. This variable is based on data from the Central Florida Regional

Planning Model (v6.1), specifically the 2040 projected vehicle-miles of travel of all county-

generated trips on all in-county roadways.

Facility TypeVMT

(2040)% VMT

Interstate/Toll Facilities 716,873 19.0%

Other Roads 3,052,473 81.0%

Total 3,769,346 100.0%


Table C-2

Non-State VMT Adjustment Factor

Source: CFRPM v6.1, 2040 Cost Feasible Plan

Single Family Residential Trip Generation Rate Tiering

As part of this study, the single family residential trip generation rate tiering is included to reflect

a three‐tier analysis to ensure equity by the size of a home. To facilitate this, an analysis is

completed on the comparative relationship between housing size and household travel behavior.

This analysis utilizes data from the 2017 National Household Travel Survey (NHTS) and the 2019

American Housing Survey (AHS) to examine overall trip‐making characteristics of households in

the United States.

Table C‐3 presents the trip characteristics being utilized in the transportation impact fee schedule

for the single family (detached) land use. The 2017 NHTS database is used to assess average

annual household vehicle miles of travel (VMT) for various annual household income levels. In

addition, the 2019 AHS database is used to compare median annual family/household incomes

with housing unit size. It is important to recognize that the use of the income variable in each of

these databases is completed simply to provide a convenient linking mechanism between

household VMT from the NHTS and housing unit size from the AHS.

Table C-3

Calculated Single Family Trip Characteristics

Source: Florida Studies for LUC 210 included in this Appendix

The results of the NHTS and AHS analyses are included in Tables C‐4 and C‐5. First, the data

shown in Table C‐4 presents the average income in the U.S. for families/households living in the

three housing tiers. As shown, the average income for housing units between 1,500 square feet

and 2,499 square feet in size ($73,114) is higher than the overall average income for the U.S.

($63,008).

Facility TypeVMT

(2040)% VMT

Non-State Roads 1,263,695 44%

State Roads 1,612,351 56%

Total 2,876,046 100%

Calculated Values Trip RateAssessable

Trip Length

Daily

VMT

Single Family (Detached) 7.81 7.61 59.43


Table C-4

Annual Income by Housing Size

Source: 2019 ACS Estimates for Tables B25033, B25044, and B25024

To calculate a corresponding trip rate for the new tiers it is necessary to rely on comparative

ratios. As an example, consider the $50,304 annual income category. First, it is determined that

the average annual household VMT for this income level is 17,850 miles. This figure is compared

to the overall average annual VMT per household in the U.S. and normalized to the average of

the $63,008 (18,754 miles) category to derive a ratio of 0.952 as shown in Table C‐5. This figure

is then normalized to the $73,114 (20,027 miles) category, as this tier corresponds to the average

trip generation rate of 7.81 presented in Table C‐3, resulting in a ratio of 0.891.

Next, the normalized ratio is applied to the daily VMT for the average single family housing unit

size (less than 1,500 sf) to generate a daily VMT of 52.95 for the new tier, as shown in Table C‐6.

This daily VMT figure is then divided by the proposed assessable trip length of 7.61 miles to obtain

a typical trip rate of 6.96 trips per day.

Table C-5

NHTS Annual VMT by Income Category

Source: 2017 National Household Travel Survey Database, Federal Highway Administration

2019 AHS Average Income

Data by Housing Size

Annual

Income(1)

Less than 1,500 sf $50,304

1,500 to 2,499 sf $73,114

2,500 sf or more $90,228

Average of All Houses $63,008

2017 NHTS Travel Data by

Annual HH Income

Annual

VMT/HHDays Daily VMT

Ratio to

Mean

Normalized

to 1.068

Average of $50,304 17,850 365 48.90 0.952 0.891

Total (All Homes) 18,754 365 51.38 1.000

Average of $73,114 20,027 365 54.87 1.068 1.000

Average of $90,228 22,641 365 62.03 1.207 1.130


Table C-6

Trip Generation Rate by Single Family Land Use Tier

1) Daily VMT (Item 3) divided by assessable trip length (Item 2) for each tiered single family land use

category 2) Source: Table C-3 3) Ratio to the mean (Item 4) divided by total daily VMT for the 1,500 to 2,499 sf tier for each tiered

single family land use category 4) Source: Table C-5

Table C-7 illustrates the tiered transportation impact fee schedule.

Table C-7

Net Transportation Impact Fee by Single Family Land Use Tier

1) Source: Table C-6 2) Source: Appendix F, Table F-1

Florida Studies Trip Characteristics Database

The Florida Studies Trip Characteristics Database includes approximately 345 studies on 40

different residential and non-residential land uses collected over the last 30 years. Data from

these studies include trip generation, trip length, and percent new trips for each land use. This

information has been used in the development of impact/multi-modal/mobility fees and the

creation of land use plan category trip characteristics for communities throughout Florida and

the U.S.

Tindale Oliver estimates trip generation rates for all land uses in an impact fee schedule using

data from studies in the Florida Studies Database and the Institute of Transportation Engineers’

(ITE) Trip Generation reference report (10th edition). In instances, when both ITE Trip Generation

reference report (10th edition) and Florida Studies trip generation rate (TGR) data are available

Estimation of Trip Rate by Tier Trip Rate(1) Assessable

Trip Length(2) Daily VMT

(3) Ratio to

Mean(4)

Single Family (Detached)

Less than 1,500 sf 6.96 7.61 52.95 0.891

1,500 to 2,499 sf 7.81 7.61 59.43 1.000

2,500 sf or larger 8.83 7.61 67.16 1.130

Impact of Tiering on Fee

Schedule Trip Rate

(1) Assessable

Trip LengthDaily VMT Net Fee

(2)

Single Family (Detached)

Less than 1,500 sf 6.96 7.61 52.95 $6,673

1,500 to 2,499 sf 7.81 7.61 59.43 $7,487

2,500 sf or larger 8.83 7.61 67.16 $8,465


for a particular land use, the data is typically blended together to increase the sample size and

provide a more valid estimate of the average number of trips generated per unit of development.

If no Florida Studies data is available, only TGR data from the ITE reference report is used in the

fee calculation.

The trip generation rate for each respective land use is calculated using machine counts that

record daily traffic into and out of the site studied. The traffic count hoses are set at entrances

to residential subdivisions for the residential land uses and at all access points for non-residential

land uses.

The trip length information is obtained through origin-destination surveys that ask respondents

where they came from prior to arriving at the site and where they intended to go after leaving

the site. The results of these surveys were used to estimate average trip length by land use.

The percent new trip variable is based on assigning each trip collected through the origin-

destination survey process a trip type (primary, secondary, diverted, and captured). The percent

new trip variable is then calculated as 1 minus the percentage of trips that are captured. Tindale

Oliver has published an article entitled, Measuring Travel Characteristics for Transportation

Impact Fees, ITE Journal, April 1991 on the data collecting methodology for trip characteristics

studies.

Table C-8

Location Size (1,000 sf) DateTotal #

Interviews

# Trip Length

InterviewsTrip Gen Rate Time Period Trip Length Percent New Trips VMT Source

Orange Co, FL 89.6 2006 - - 1.23 - - - - Orange County




Orange Co, FL 77.0 2009 - - 2.18 - - - - Tindale Oliver


Total Size 545.0 5 Average Trip Length: n/a

ITE 780.0 15 Weighted Average Trip Length: n/a

Blended total 1,325.0 Weighted Percent New Trip Average: -

Weighted Average Trip Generation Rate: 1.47

ITE Average Trip Generation Rate: 1.51

Blend of FL Studies and ITE Average Trip Generation Rate: 1.49

Land Use 151: Mini-Warehouse


Table C-9

Table C-10

Location Size / Units DateTotal #

Interviews

# Trip Length


Sarasota Co, FL 76 Jun-93 70 70 10.03 - 6.00 - 60.18 Sarasota County








Hernando Co, FL 76 May-96 148 148 10.01 9a-6p 4.85 - 48.55 Tindale Oliver




Charlotte Co, FL 135 Oct-97 230 - 5.30 9a-5p 7.90 - 41.87 Tindale Oliver









Charlotte Co, FL 1,169 Oct-97 348 - 6.10 9a-5p 8.00 - 48.80 Tindale Oliver

Collier Co, FL 90 Dec-99 91 - 12.80 8a-6p 11.40 - 145.92 Tindale Oliver

Collier Co, FL 400 Dec-99 389 - 7.80 8a-6p 6.40 - 49.92 Tindale Oliver

Lake Co, FL 49 Apr-02 170 - 6.70 7a-6p 10.20 - 68.34 Tindale Oliver



Pasco Co, FL 55 Apr-02 133 - 6.80 8a-6p 8.12 - 55.22 Tindale Oliver





Marion Co, FL 102 Apr-02 167 - 8.02 7a-6p 5.10 - 40.90 Kimley-Horn & Associates





Citrus Co, FL 111 Oct-03 273 - 8.66 7a-6p 7.70 - 66.68 Tindale Oliver





Lake Co, FL 42 Dec-06 122 - 11.26 - 5.56 - 62.61 Tindale Oliver





Hernando Co, FL 232 Apr-07 516 - 8.02 7a-6p 8.16 - 65.44 Tindale Oliver




Collier Co, FL 74 Mar-08 503 - 12.81 7a-6p 3.05 - 39.07 Tindale Oliver


Collier Co, FL 315 Mar-08 1,347 - 6.97 7a-6p 6.55 - 45.65 Tindale Oliver


Total Size 10,380 55 13,130 Average Trip Length: 6.79

Weighted Average Trip Length: 6.62


Land Use 210: Single Family - Detached


Interviews

# Trip Length



Sarasota Co, FL 243 Jun-93 36 36 5.84 - - - - Sarasota County

Marion Co, FL 214 Apr-02 175 175 6.84 - 4.61 - 31.53 Kimley-Horn & Associates





Lake Co, FL 250 Dec-06 135 135 6.71 - 5.33 - 35.76 Tindale Oliver

Lake Co, FL 157 Dec-06 265 265 13.97 - 2.62 - 36.60 Tindale Oliver



Hernando Co, FL 312 Apr-07 456 - 4.09 - 5.95 - 24.34 Tindale Oliver

Hernando Co, FL 176 Apr-07 332 - 5.38 - 5.24 - 28.19 Tindale Oliver

Orange Co, FL 364 Nov-13 - - 9.08 - - - - Orange County

Orange Co, FL 108 Aug-14 - - 5.51 - - - - Orange County



Pasco Co, FL 229 Apr-02 198 198 4.77 9a-6p - - - Tindale Oliver

Pasco Co, FL 248 Apr-02 353 353 4.24 9a-6p 3.53 - 14.97 Tindale Oliver

Total Size 4,575 Average Trip Length: 4.27

Total Size (TL) 3,631 Weighted Average Trip Length: 5.10

Land Use 220/221/222: Multi-Family (Low-, Mid-, High-Rise)


Table C-11

Table C-12

Table C-13

Table C-14


Interviews

# Trip Length


Marion Co, FL 67 Jul-91 22 22 5.40 48hrs. 2.29 - 12.37 Tindale Oliver

Marion Co, FL 82 Jul-91 58 58 10.80 24hr. 3.72 - 40.18 Tindale Oliver

Marion Co, FL 137 Jul-91 22 22 3.10 24hr. 4.88 - 15.13 Tindale Oliver



Marion Co, FL 188 Apr-02 147 - 3.51 24hr. 5.48 - 19.23 Kimley-Horn & Associates



Hernando Co, FL 1,892 May-96 425 425 4.13 9a-6p 4.13 - 17.06 Tindale Oliver

Total Size 4,121 9 1,303 Average Trip Length: 4.84



Land Use 240: Mobile Home Park


Interviews

# Trip Length


Pinellas Park, FL 72 Aug-89 25 19 3.50 9am-5pm 2.20 79.0 7.70 Tindale Oliver

Palm Harbor, FL 200 Oct-89 58 40 - 9am-5pm 3.40 69.0 - Tindale Oliver

Total Size 272 2 83 Average Trip Length: 2.80

ITE 388 2 Weighted Average Trip Length: 3.08

Blended total 660 Weighted Percent New Trip Average: 71.6

460 Weighted Average Trip Generation Rate: 3.50



Land Use 253: Congregate Care Facility/Assisted Living Facility

Location Size (Rooms) DateTotal #

Interviews

# Trip Length


Pinellas Co, FL 174 Aug-89 134 106 12.50 7-11a/3-7p 6.30 79.0 62.21 Tindale Oliver

Pinellas Co, FL 114 Oct-89 30 14 7.30 12-7p 6.20 47.0 21.27 Tindale Oliver

Orange Co, FL 123 1997 - - 6.32 - - - - Orange County




















Orange Co, FL 1,584 2005 - - 5.88 - - - - Orange County


Orange Co, FL 1,499 2006 - - 4.69 - - - - Orange County

Orange Co, FL 144 - - - 4.74 - - - - Orange County








Orange Co, FL 1,501 2011 - - 3.50 - - - - Tindale Oliver

Orange Co, FL 174 2011 - - 7.03 - - - - Tindale Oliver

Orange Co, FL 238 2014 - - 4.05 - - - - Tindale Oliver

Total Size 10,184 21 164 Average Trip Length: 6.25


Blended total 11,060 Weighted Percent New Trip Average: 66.3




Land Use 310: Hotel

Location Size (Rooms) DateTotal #

Interviews

# Trip Length


Pinellas Co, FL 48 Oct-89 46 24 - 10a-2p 2.80 65.0 - Tindale Oliver

Pinellas Co, FL 54 Oct-89 32 22 - 12p-7p 3.80 69.0 - Tindale Oliver

Pinellas Co, FL 120 Oct-89 26 22 - 2p-7p 5.20 84.6 - Tindale Oliver



Weighted Percent New Trip Average: 76.6

Land Use 320: Motel


Table C-15

Table C-16

Table C-17

Table C-18

Table C-19

Table C-20

Location Size (Screens) DateTotal #

Interviews

# Trip Length


Pinellas Co, FL 8 Oct-89 151 116 113.10 2p-8p 2.70 77.0 235.13 Tindale Oliver

Pinellas Co, FL 12 Sep-89 122 116 63.40 2p-8p 1.90 95.0 114.44 Tindale Oliver







Land Use 444: Movie Theater


Interviews

# Trip Length


Tampa, FL - Mar-86 33 31 - - - 94.0 - Kimley-Horn & Associates

Total Size 33 Average Trip Length: n/a

ITE 37 8 Percent New Trip Average: 94.0

Land Use 492: Health/Fitness Club


Interviews

# Trip Length


Pinellas Co, FL 5.6 Aug-89 94 66 66.99 7a-6p 1.90 70.0 89.10 Tindale Oliver

Pinellas Co, FL 10.0 Sep-89 179 134 66.99 7a-6p 2.10 75.0 105.51 Tindale Oliver

Tampa, FL - Mar-86 28 25 - - 2.60 89.0 - Kimley-Horn & Associates

Total Size 15.6 2 301 Average Trip Length: 2.20

ITE 135.0 27 Weighted Average Trip Length: 2.03

Blended total 150.6 Weighted Percent New Trip Average: 73.2




Land Use 565: Day Care Center

Location Size (Beds) DateTotal #

Interviews

# Trip Length


Lakeland, FL 120 Mar-90 74 66 2.86 11a-4p 2.59 89.0 6.59 Tindale Oliver







Land Use 620: Nursing Home


Interviews

# Trip Length


Sarasota Co, FL 14.3 Jun-93 14 14 46.85 - 11.30 - 529.41 Sarasota County

Gwinnett Co, GA 98.0 Dec-92 - - 4.30 - 5.40 - - Street Smarts

Gwinnett Co, GA 180.0 Dec-92 - - 3.60 - 5.90 - - Street Smarts

Pinellas Co, FL 187.0 Oct-89 431 388 18.49 7a-5p 6.30 90.0 104.84 Tindale Oliver

St. Petersburg, FL 262.8 Sep-89 291 274 - 7a-5p 3.40 94.0 - Tindale Oliver


ITE 11,286.0 66 Weighted Average Trip Length: 5.15


Land Use 710: General Office Building


Interviews

# Trip Length



Palm Harbor, FL 14.6 Oct-89 104 76 33.98 9a-5p 6.30 73.0 156.27 Tindale Oliver

St. Petersburg, FL - Nov-89 34 30 57.20 9a-4p 1.20 88.0 - Tindale Oliver

Hernando Co, FL 58.4 May-96 390 349 28.52 9a-6p 6.47 89.5 165.09 Tindale Oliver


Charlotte Co, FL 11.0 Oct-97 - 186 49.50 9a-5p 4.60 92.1 209.67 Tindale Oliver



Citrus Co, FL 38.9 Oct-03 - 168 32.26 8-6p 6.80 97.1 213.03 Tindale Oliver

Citrus Co, FL 10.0 Nov-03 - 340 40.56 8-630p 6.20 92.4 232.33 Tindale Oliver

Citrus Co, FL 5.3 Dec-03 - 20 29.36 8-5p 5.25 95.2 146.78 Tindale Oliver






Average Trip Generation Rate: 32.59



Land Use 720: Medical-Dental Office Building


Table C-21

Table C-22

IN OUT IN OUT IN OUT IN OUT IN OUT IN OUT TOTAL

Site 1 2.100 35 35 22 22 13 13 70 70 23.33 23.33 11.11 11.11 22.22

Site 2 3.000 40 40 52 52 53 53 145 145 48.33 48.33 16.11 16.11 32.22

Site 3 2.000 28 28 19 21 24 26 71 75 23.67 25.00 11.84 12.50 24.34

Site 4 1.000 30 30 52 52 57 57 139 139 46.33 46.33 46.33 46.33 92.66

Site 5 3.024 31 32 43 43 24 24 98 99 32.67 33.00 10.80 10.91 21.71

Site 6 1.860 22 24 19 17 11 11 52 52 17.33 17.33 9.32 9.32 18.64

Average 17.59 17.71 35.30

Average (excluding Site 4) 11.84 11.99 23.83

LUC 720: Small Medical/Dental Office Building: 10,000 sf or Less

Site Size (1,000 sf)Tues., Jan 11 Wedn., Jan 12 Thur., Jan 13 TOTAL AVERAGE AVERAGE (per 1,000 sf)


Interviews

# Trip Length



Tampa, FL - Mar-86 170 - - - 1.70 - - Kimley-Horn & Associates



St. Petersburg, FL 1,192.0 Aug-89 384 298 - 11a-7p 3.60 78.0 - Tindale Oliver

St. Petersburg, FL 132.3 Sep-89 400 368 77.00 10a-7p 1.80 92.0 127.51 Tindale Oliver

Largo, FL 425.0 Aug-89 160 120 26.73 10a-6p 2.30 75.0 46.11 Tindale Oliver

Dunedin, FL 80.5 Sep-89 276 210 81.48 9a-5p 1.40 76.0 86.69 Tindale Oliver

Pinellas Park, FL 696.0 Sep-89 485 388 - 9a-6p 3.20 80.0 - Tindale Oliver

Seminole, FL 425.0 Oct-89 674 586 - - - 87.0 - Tindale Oliver

Hillsborough Co, FL 134.0 Jul-91 - - - - 1.30 74.0 - Tindale Oliver

Hillsborough Co, FL 151.0 Jul-91 - - - - 1.30 73.0 - Tindale Oliver

Collier Co, FL - Aug-91 68 64 - - 3.33 94.1 - Tindale Oliver


Sarasota/Bradenton, FL 109.0 Sep-92 300 185 - 12a-6p - 61.6 - King Engineering Associates, Inc.

Ocala, FL 133.4 Sep-92 300 192 - 12a-6p - 64.0 - King Engineering Associates, Inc.

Gwinnett Co, GA 99.1 Dec-92 - - 46.00 - 3.20 70.0 103.04 Street Smarts

Gwinnett Co, GA 314.7 Dec-92 - - 27.00 - 8.50 84.0 192.78 Street Smarts

Sarasota Co, FL 110.0 Jun-93 58 58 122.14 - 3.20 - - Sarasota County





Charlotte Co, FL 88.0 Oct-97 - - 73.50 9a-5p 1.80 57.1 75.56 Tindale Oliver



Lake Co, FL 67.8 Apr-01 246 177 102.60 - 3.40 71.2 248.37 Tindale Oliver


Pasco Co, FL 65.6 Apr-02 222 - 145.64 9a-5p 1.46 46.9 99.62 Tindale Oliver

Pasco Co, FL 75.8 Apr-02 134 - 38.23 9a-5p 2.36 58.2 52.52 Tindale Oliver

Citrus Co, FL 185.0 Oct-03 - 784 55.84 8a-6p 2.40 88.1 118.05 Tindale Oliver

Citrus Co, FL 91.3 Nov-03 - 390 54.50 8a-6p 1.60 88.0 76.77 Tindale Oliver

Bozeman, MT 104.3 Dec-06 359 359 46.96 - 3.35 49.0 77.08 Tindale Oliver



Total Size 5,757.5 7,536 Average Trip Length: 2.66


Land Use 820: Shopping Center


Figure C-1

LUC 820: Retail/Shopping Center – Florida Curve Trip Length Regression

Source: Regression analysis based on FL Studies data for LUC 820

Figure C-2

LUC 820: Retail/Shopping Center – Florida Curve Percent New Trips Regression

Source: Regression analysis based on FL Studies data for LUC 820

0.00

0.50

1.00

1.50

2.00

2.50

3.00

3.50

4.00

0 200 400 600 800 1000 1200 1400 1600

Trip

Len

gth

(M

iles)

Square Footage

0%

10%

20%

30%

40%

50%

60%

70%

80%

90%

0 200 400 600 800 1000 1200 1400 1600

Per

cen

t N

ew

Tri

ps

Square Footage

Regression Equations:

<100,000 sq ft: y = 0.7284x^0.2405

100,000+ sq ft: y = 0.0012x + 2.1686

Regression Equation:

y = 0.0814ln(x) + 0.243


Table C-23

Table C-24

Table C-25

Table C-26

Table C-27


Interviews

# Trip Length


St.Petersburg, FL 43.0 Oct-89 152 120 - 9a-5p 4.70 79.0 - Tindale Oliver

Clearwater, FL 43.0 Oct-89 136 106 29.40 9a-5p 4.50 78.0 103.19 Tindale Oliver






Orange Co, FL 51.7 2007 - - 40.34 - - - - L-TEC

Orange Co, FL 36.6 - - - 15.17 - - - - Orange County



ITE (840) 648.0 18 Weighted Average Trip Length: 4.60

ITE (841) 28.0 14 Weighted Percent New Trip Average: 78.5

Blended total 1,294.0 Weighted Average Trip Generation Rate: 21.04

ITE Average Trip Generation Rate (LUC 840): 27.84



Land Use 840/841: New/Used Automobile Sales


Interviews

# Trip Length


Palm Harbor, FL 62.0 Aug-89 163 62 106.26 9a-4p 2.08 56.0 123.77 Tindale Oliver







Land Use 850: Supermarket


Interviews

# Trip Length



Largo, FL 2.5 8/15,25/89 171 116 634.80 - 1.20 68.0 518.00 Tindale Oliver

Clearwater, FL 2.5 Aug-89 237 64 690.80 - 1.60 27.0 298.43 Tindale Oliver

Clearwater, FL 2.1 Nov-89 143 50 635.24 24hr. 1.60 35.0 355.73 Tindale Oliver

Marion Co, FL 2.5 Jun-91 94 43 787.20 48hrs. 1.52 46.2 552.80 Tindale Oliver





Gwinnett Co, GA 2.9 12/13-18/92 - - - - 2.30 48.0 - Street Smarts

Gwinnett Co, GA 3.2 12/13-18/92 - - - - - 37.0 - Street Smarts

Total Size 18.2 7 1,241 Average Trip Length: 1.48



36.1 Weighted Average Trip Generation Rate: 694.30



Land Use 851: Convenience Market


Interviews

# Trip Length


Pasco Co, FL 11.1 Apr-02 138 38 88.97 - 2.05 27.5 50.23 Tindale Oliver




ITE (LUC 880) 66.0 6 Weighted Average Trip Length: 2.08

ITE (LUC 881) 208.0 16 Weighted Percent New Trip Average: 32.4

Blended total 312.2 Average Trip Generation Rate: 103.03




Land Use 880/881: Pharmacy with and without Drive-Through Window


Interviews

# Trip Length


Largo, FL 15.0 7/28-30/92 64 34 - - 4.63 52.5 - Tindale Oliver

Tampa, FL 16.9 Jul-92 68 39 - - 7.38 55.7 - Tindale Oliver




Land Use 890: Furniture Store


Table C-28

Table C-29

Table C-30


Interviews

# Trip Length



Tampa, FL - Mar-86 211 - - - - 54.0 - Kimley-Horn & Associates

Clearwater, FL 0.4 Aug-89 113 52 - 9a-6p 5.20 46.0 - Tindale Oliver

Largo, FL 2.0 Sep-89 129 94 - - 1.60 73.0 - Tindale Oliver

Seminole, FL 4.5 Oct-89 - - - - - - - Tindale Oliver

Marion Co, FL 2.3 Jun-91 69 29 - 24hr. 1.33 42.0 - Tindale Oliver

Marion Co, FL 3.1 Jun-91 47 32 - 24hr. 1.75 68.1 - Tindale Oliver

Marion Co, FL 2.5 Jul-91 57 26 - 48hrs. 2.70 45.6 - Tindale Oliver

Collier Co, FL - Aug-91 162 96 - 24hr. 0.88 59.3 - Tindale Oliver



Hernando Co, FL 5.4 May-96 164 41 - 9a-6p 2.77 24.7 - Tindale Oliver

Marion Co, FL 2.4 Apr-02 70 - - 24hr. 3.55 54.6 - Kimley-Horn & Associates

Marion Co, FL 2.7 May-02 50 - 246.66 24hr. 2.66 40.5 265.44 Kimley-Horn & Associates







Land Use 912: Drive-In Bank


Interviews

# Trip Length



St. Petersburg, FL 7.5 Oct-89 177 154 - 11a-2p/4-8p 3.50 87.0 - Tindale Oliver

Clearwater, FL 8.0 Oct-89 60 40 110.63 10a-2p/5-9p 2.80 67.0 207.54 Tindale Oliver







Land Use 931: Quality Restaurant


Interviews

# Trip Length


Hernando Co, FL 6.2 1996 242 175 187.51 9a-6p 2.76 72.5 375.00 Tindale Oliver

Hernando Co, FL 8.2 1996 154 93 102.71 9a-6p 4.15 60.2 256.43 Tindale Oliver

St. Petersburg, FL 5.0 1989 74 68 132.60 1130-7p 2.00 92.0 243.98 Tindale Oliver

Kenneth City, FL 5.2 1989 236 176 127.88 4p-730p 2.30 75.0 220.59 Tindale Oliver

Pasco Co, FL 5.2 2002 114 88 82.47 9a-6p 3.72 77.2 236.81 Tindale Oliver

Pasco Co, FL 5.8 2002 182 102 116.97 9a-6p 3.49 56.0 228.77 Tindale Oliver


























Land Use 932: High-Turnover (Sit-Down) Restaurant


Table C-31

Table C-32

Table C-33

Table C-34


Interviews

# Trip Length



Tampa, FL - Mar-86 306 - - - - 65.0 - Kimley-Horn & Associates

Pinellas Co, FL 2.20 Aug-89 81 48 502.80 11a-2p 1.70 59.0 504.31 Tindale Oliver

Pinellas Co, FL 4.30 Oct-89 456 260 660.40 1 day 2.30 57.0 865.78 Tindale Oliver

Tarpon Springs, FL - Oct-89 233 114 - 7a-7p 3.60 49.0 - Tindale Oliver









Lake Co, FL 3.20 Apr-01 171 182 654.90 - - 47.8 - Tindale Oliver


Pasco Co, FL 2.66 Apr-02 100 46 283.12 9a-6p - 46.0 - Tindale Oliver

Pasco Co, FL 2.96 Apr-02 486 164 515.32 9a-6p 2.72 33.7 472.92 Tindale Oliver

Pasco Co, FL 4.42 Apr-02 168 120 759.24 9a-6p 1.89 71.4 1024.99 Tindale Oliver







Land Use 934: Fast Food Restaurant with Drive-Through Window


Interviews

# Trip Length


Largo, FL 5.5 Sep-89 34 30 37.64 9a-5p 2.40 88.0 79.50 Tindale Oliver

Jacksonville, FL 2.3 2/3-4/90 124 94 - 9a-5p 3.07 76.0 - Tindale Oliver



Lakeland, FL 5.2 Mar-90 24 14 - 9a-4p 1.36 59.0 - Tindale Oliver

Lakeland, FL - Mar-90 54 42 - 9a-4p 2.44 78.0 - Tindale Oliver

Orange Co, FL 25.0 Nov-92 41 39 - 2-6p 4.60 - - LCE, Inc.







ITE Average Trip Generation Rate (adjusted): 31.10


Land Use 942: Automobile Care Center


Interviews

# Trip Length


Largo, FL 0.6 Nov-89 70 14 - 8am-5pm 1.90 23.0 - Tindale Oliver



ITE (vfp) 144.0 18 Weighted Average Trip Length: 1.90


Land Use 944: Gasoline/Service Station


Interviews

# Trip Length


Volusia Co, FL - - - - 918.00 - 2.40 33.0 727.06 Tindale Oliver

Indian River Co, FL 2.5 Mar-98 132 52 748.30 8a-6p 3.70 19.7 545.44 Tindale Oliver

Indian River Co, FL 3.0 Mar-98 107 84 563.10 8a-6p 2.00 39.3 442.60 Tindale Oliver

Indian River Co, FL 3.1 Mar-98 132 110 1,396.00 8a-6p 1.80 41.7 1,047.84 Tindale Oliver

Collier Co, FL 2.4 Nov-99 - 128 1,399.58 8a-6p 4.10 13.3 763.19 Tindale Oliver

Collier Co, FL 3.3 Nov-99 - 144 862.56 8a-6p 2.20 39.6 751.46 Tindale Oliver





Gasoline/Fast Food/Convenience Store (ITE LUC - )

Appendix D


Cost Component

Tindale Oliver Flagler County June 2021 D-1 Impact Fee Update Study

Appendix D: TIF - Cost Component

This appendix presents the detailed calculations for the cost component of the transportation

impact fee update. Supporting data and estimates are provided for all cost variables, including:

• Design

• Right-of-Way

• Construction

• Construction Engineering & Inspection

• Roadway Capacity

Urban-Design vs. Rural-Design

Due to limited construction data for roadway with rural‐design characteristics, the cost per lane

mile for these types of roads was calculated using an adjustment factor. This factor was based

on the rural‐to‐urban design cost ratio from the most recent District 7 Long Range Estimates

provided by FDOT (this data was not available for FDOT District 5). Based on the LRE, the costs

for rural‐design roadway capacity expansion (new road construction or lane addition) are

approximately 74 percent of the construction costs for urban‐design roadway improvements.

Table D-1

Urban/Rural-Design Cost Factor

Source: FDOT District 7 Long Range Estimates, 2020

Open Drainage

(Rural) Design

Curb & Gutter

(Urban) DesignRatio

0-2 Lanes $3,350,274 $5,291,803 63%

0-4 Lanes $2,721,207 $3,724,310 73%

0-6 Lanes $2,316,558 $3,015,469 77%

2-4 Lanes $3,934,220 $4,878,758 81%

4-6 Lanes $4,298,678 $5,485,762 78%

Average $3,324,187 $4,479,220 74%

Improvement

Cost per Lane Mile


Design

County Roadways

The design cost factor for county roads is estimated as a percentage of the construction cost per

lane mile. This factor is determined based on a review of design-to-construction cost ratios from

recent projects in Flagler County and from previously completed transportation impact fee

studies throughout Florida. For local estimates, a single recent project (Old Kings Rd Ext. from

Forest Grove Dr to Matanzas Woods Pkwy) was observed, with a design-to-construction ratio of

17 percent (Table D-2). For county roadways throughout Florida, the design factors ranged from

six (6) percent to 13 percent with a weighted average of 10 percent (Table D-3). For purposes of

this study, the design cost for county roads is calculated at 10 percent of the construction cost

per lane mile, providing a conservative estimate when compared to a recent local improvement.


Table D-2

Design Cost Factor – Flagler County Local Roadway Improvements

Source: Flagler County Planning and Zoning Department

Table D-3

Design Cost Factor for County Roads – Recent Impact Fee Studies

Source: Recent impact fee studies conducted throughout Florida

County Project Description Constr. Date LengthLanes

Added

Lane Miles

AddedDesign Construction

Design/

Construction

Flagler Old Kings Rd Ext. from Forest Grove Dr to Matanzas Woods Pkwy 0 to 4-Lane Ext. 2015 0.52 4 2.08 $831,638 $4,831,579 17%

Design Constr. Design Ratio

2013 Hernando $198,000 $1,980,000 10%

2013 Charlotte $220,000 $2,200,000 10%

2014 Indian River $159,000 $1,598,000 10%

2015 Collier $270,000 $2,700,000 10%

2015 Brevard $242,000 $2,023,000 12%

2015 Sumter $210,000 $2,100,000 10%

2015 Marion $167,000 $2,668,000 6%

2015 Palm Beach $224,000 $1,759,000 13%

2017 St. Lucie $220,000 $2,200,000 10%

2017 Clay $239,000 $2,385,000 10%

2019 Collier $385,000 $3,500,000 11%

2019 Sumter $315,000 $2,862,000 11%

2020 Indian River $291,000 $2,647,000 11%

2020 Hillsborough $484,000 $4,036,000 12%

2020 Hernando $232,000 $2,108,000 11%

$257,000 $2,451,000 10%

Year CountyCity/County Roadways (Cost per Lane Mile)

Average


Right-of-Way

The ROW cost reflects the total cost of the acquisitions along a corridor that was necessary to

have sufficient cross-section width to widen an existing road or, in the case of new road

construction, build a new road.

County Roadways

For impact fee purposes, the ROW cost for county roads is estimated as a percentage of the

construction cost per lane mile. To determine the ROW cost factor, Tindale Oliver conducted a

review of recent local ROW acquisitions and estimates along capacity expansion projects in

Flagler County and reviewed ROW-to-construction cost ratios from recent transportation impact

fee studies from other counties in Florida. As shown in Table D-4, the ROW cost for a recently

completed section of Old Kings Road was approximately five (5) percent of the project’s

construction cost. An additional project (SR 100 from Old Kings Rd to Belle Terre) from the 2045

LRTP Cost Feasible Plan shows the ROW ratio estimated at 10 percent. Additionally, an aerial

review of the 2045 LRTP improvements suggested that many of the proposed projects appear to

have ROW already acquired or readily available.

As shown in Table D-5, the ROW-to-construction factor for recent studies throughout Florida

ranged from 20 percent to 60 percent with an average of 41 percent.

For impact fee calculation purposes, ROW costs are calculated at approximately 10 percent of

the construction costs to reflect recent local data.


Table D-4

Right-of-Way Cost Factor – Flagler County Local Roadway Improvements


Table D-5

Right-of-Way Cost Factor for County Roads – Recent Impact Fee Studies



Added

Lane Miles

AddedROW Construction

ROW/

Construction

RECENT COMPLETED


2045 LRTP COST FEASIBLE PLAN

Flagler SR 100 from Old Kings Rd to Belle Terre Pkwy 4 to 6-Lanes LRTP 2.56 2 5.12 $3,170,000 $31,700,000 10%

Count: 2 7.20 $3,435,340 $36,531,579 9% Total

ROW Constr. ROW Ratio

2013 Hernando $811,800 $1,980,000 41%

2013 Charlotte $1,034,000 $2,200,000 47%

2014 Indian River $656,000 $1,598,000 41%

2015 Collier $863,000 $2,700,000 32%

2015 Brevard $708,000 $2,023,000 35%

2015 Sumter $945,000 $2,100,000 45%

2015 Marion $1,001,000 $1,668,000 60%

2015 Palm Beach $721,000 $1,759,000 41%

2017 St. Lucie $990,000 $2,200,000 45%

2017 Clay $954,000 $2,385,000 40%

2018 Collier $1,208,000 $3,500,000 35%

2019 Sumter $1,202,000 $2,862,000 42%

2020 Indian River $529,000 $2,647,000 20%

2020 Hillsborough $1,448,000 $2,897,000 50%

2020 Hernando $844,000 $2,108,000 40%

$899,255 $2,192,091 41%

Year CountyCounty Roadways (Cost per Lane Mile)

Average


Construction

County Roadways

A review of construction cost data for local county roadway capacity expansion projects included

a single improvement in Flagler County:

• Old Kings Rd Ext. from Forest Grove Dr to Matanzas Woods Pkwy

As shown in Table D-6, construction for this improvement cost approximately $2.32 million per

lane mile. Cost estimates provided in the 2045 LRTP Cost Feasible Plan were also reviewed,

ranging from $3.70 million to $6.48 million per lane mile.

Given the limited sample size and large range of costs between recent and projected

improvements, a review of recently bid projects (from 2013 to 2020) throughout the state of

Florida was conducted. As shown in Table D-7, a total of 37 projects from 14 different counties

(excluding Flagler County) were identified with a weighted average cost of approximately $3.11

million per lane mile. These counties were then grouped into “urban” and “rural” counties, with

the rural counties (all counties excluding Broward, Hillsborough, Miami-Dade, Orange, and Palm

Beach) having 25 projects, averaging $2.81 million per lane mile.

Based on this review, the construction cost for county roads (urban design; curb & gutter) was

estimated at $2.80 million per lane mile for use in the transportation impact fee calculation.


Table D-6

Construction Cost – Flagler County Local Roadway Improvements: County Roads


County Jurisdiction Project Description Constr. Date LengthLanes

Added

Lane Miles

Added

Construction

Cost

Constr. Cost

per Lane Mile

RECENT COMPLETED

Flagler Non-State Old Kings Rd Ext. from Forest Grove Dr to Matanzas Woods Pkwy 0 to 4-Lane Ext. 2015 0.52 4 2.08 $4,831,579 $2,322,875

2045 LRTP COST FEASIBLE PLAN

Flagler Non-State Old Kings Rd from Palm Harbor Village Pkwy to Farnum Ln 2 to 4-Lanes LRTP 1.44 2 2.88 $18,650,000 $6,475,694

Flagler Non-State Old Kings Rd from Farnum Ln to Forest Grove Dr 2 to 4-Lanes LRTP 1.58 2 3.16 $17,450,000 $5,522,152

Flagler Non-State Old Kings Rd Ext. from Matanzas Woods Pkwy to Old Kings Rd 0 to 2-Lanes LRTP 0.82 2 1.64 $7,381,000 $4,500,610

Flagler Non-State Matanzas Woods Pkwy from SR 5 (US 1) to I-95 2 to 4-Lanes LRTP 2.00 2 4.00 $14,796,900 $3,699,225

Count: 5 13.76 $63,109,479 $4,586,445 Total


Table D-7

Construction Cost for County Roads – Improvements from Other Jurisdictions throughout Florida

Source: Data obtained from each respective county (Building and Public Works Departments)

CountyCounty

ClassificationDistrict Description From To Year Feature Design Length

Lanes

Added

Lane Miles

AddedConstruction Cost

Construction Cost

per Lane Mile

URBAN Counties; Curb & Gutter

Orange Urban 5 Rouse Rd Lake Underhill Rd SR 50 2013 2 to 4 Urban 1.55 2 3.10 $7,592,408 $2,449,164

Orange Urban 5 Lake Underhill Rd Goldenrod Rd Chickasaw Tr 2013 2 to 4 Urban 0.69 2 1.38 $6,371,855 $4,617,286

Hillsborough Urban 7 Bruce B. Downs Blvd, Seg. B/C Palm Springs Blvd Pebble Creek Dr 2013 4 to 8 Urban 3.36 4 13.44 $51,855,535 $3,858,299

Orange Urban 5 CR 535 Seg. F Overstreet Rd Fossick Rd 2014 2 to 4 Urban 0.60 2 1.20 $3,263,746 $2,719,788

Hillsborough Urban 7 Boyette Rd, Ph. III Donneymoor Dr Bell Shoals Rd 2014 2 to 4 Urban 1.84 2 3.68 $25,720,068 $6,989,149

Orange Urban 5 International Dr Westwood Blvd Westwood Blvd 2015 4 to 6 Urban 2.20 2 4.40 $16,775,875 $3,812,699

Orange Urban 5 Reams Rd Delmar Ave Taborfield Ave 2017 2 to 4 Urban 0.36 2 0.72 $3,409,584 $4,735,533

Orange Urban 5 Destination Pkwy 1B/2A Tradeshow Blvd Lake Cay 2017 2 to 4 Urban 0.78 2 1.56 $6,110,403 $3,916,925

Hillsborough Urban 7 Bruce B. Downs Blvd, Seg. A Bearss Ave Palm Springs Blvd 2017 4 to 8 Urban 3.56 4 14.24 $37,155,153 $2,609,210

Hillsborough Urban 7 Bruce B. Downs Blvd, Seg. D Pebble Creek Dr Pasco Co. Line 2018 4 to 8 Urban 1.36 4 5.44 $17,755,778 $3,263,930

Orange Urban 5 Holden Ave John Young Pkwy Orange Blossom Tr 2019 0/2 to 4 Urban 1.24 2/4 3.50 $18,798,771 $5,371,077

Orange Urban 5 Boggy Creek Rd N South Access Rd Wetherbee Rd 2019 2 to 4 Urban 1.29 2 2.58 $8,585,774 $3,327,819

Count: 12 55.24 $203,394,950 $3,682,023

RURAL Counties; Curb & Gutter

Brevard Rural 5 Babcock St S. of Foundation Park Blvd Malabar Rd 2013 2 to 4 Urban 12.40 2 24.80 $56,000,000 $2,258,065

Collier Rural 1 Collier Blvd (CR 951) Golden Gate Blvd Green Blvd 2013 4 to 6 Urban 2.00 2 4.00 $17,122,640 $4,280,660

Marion Rural 5 SW 110th St US 41 SW 200th Ave 2013 0 to 2 Urban 0.11 2 0.22 $438,765 $1,994,386

Marion Rural 5 NW 35th St NW 35th Avenue Rd NW 27th Ave 2013 0 to 4 Urban 0.50 4

Marion Rural 5 NW 35th St NW 27th Ave US 441 2013 2 to 4 Urban 1.30 2

Sumter Rural 5 C-466A, Ph. III US 301 N Powell Rd 2013 2 to 3/4 Urban 1.10 2 2.20 $4,283,842 $1,947,201

Collier Rural 1 Golden Gate Blvd Wilson Blvd Desoto Blvd 2014 2 to 4 Urban 2.40 2 4.80 $16,003,504 $3,334,063

Brevard Rural 5 St. Johns Heritage Pkwy SE of I-95 Intersection US 192 (Space Coast Pkwy) 2014 0 to 2 Sub-Urb 3.11 2 6.22 $16,763,567 $2,695,107

Sarasota Rural 1 Bee Ridge Rd Mauna Loa Blvd Iona Rd 2014 2 to 4 Urban 2.68 2 5.36 $14,066,523 $2,624,351

St. Lucie Rural 4 W Midway Rd (CR 712) Selvitz Rd South 25th St 2014 2 to 4 Urban 1.00 2 2.00 $6,144,000 $3,072,000

Lake Rural 5 N. Hancock Rd Ext. Old 50 Gatewood Dr 2014 0/2 to 4 Urban 1.50 2/4 5.00 $8,185,574 $1,637,115

Polk Rural 1 CR 655 & CR 559A Pace Rd & N of CR 559A N. of CR 559A & SR 599 2014 2 to 4 Urban 2.60 2 5.20 $10,793,552 $2,075,683

Volusia Rural 5 Howland Blvd Courtland Blvd N. of SR 415 2014 2 to 4 Urban 2.08 2 4.16 $11,110,480 $2,670,788

Polk Rural 1 Ernie Caldwell Blvd Pine Tree Tr US 17/92 2015 0 to 4 Urban 2.41 4 9.64 $19,535,391 $2,026,493

Volusia Rural 5 LPGA Blvd Jimmy Ann Dr/Grand Reserve Derbyshire Rd 2016 2 to 4 Urban 0.68 2 1.36 $3,758,279 $2,763,440

St. Lucie Rural 4 W Midway Rd (CR 712) W. of South 25th St E. of SR 5 (US 1) 2016 2 to 4 Urban 1.77 2 3.54 $24,415,701 $6,897,091

Marion Rural 5 NW/NE 35th St, Ph. 1a US 441 600' E. of W Anthony Rd 2016 2 to 4 Urban 0.30 2 0.60 $1,770,250 $2,950,417

Manatee Rural 1 44th Ave East 19th St Court East 30th St East 2016 0 to 4 Urban 0.90 4 3.60 $11,019,228 $3,060,897

Volusia Rural 5 Howland Blvd Providence Blvd Elkcam Blvd 2017 2 to 4 Urban 2.15 2 4.30 $10,850,000 $2,523,256

Volusia Rural 5 Orange Camp Rd MLK Blvd I-4 in DeLand 2017 2 to 4 Urban 0.75 2 1.50 $10,332,000 $6,888,000

Lake Rural 5 CR 466A, Ph. IIIA Poinsettia Ave Century Ave 2018 2 to 4 Urban 0.42 2 0.84 $3,062,456 $3,645,781

Lee Rural 1 Alico Rd Ben Hill Griffin Pkwy E. of Airport Haul Rd 2018 2 to 4 Urban 1.78 2 3.56 $18,062,562 $5,073,753

Lee Rural 1 Homestead Rd S. of Sunrise Blvd N. of Alabama Rd 2018 2 to 4 Urban 2.25 2 4.50 $14,041,919 $3,120,426

Manatee Rural 1 45th St East 44th Ave East SR 70 2018 2 to 4 Urban 1.10 2 2.20 $7,476,126 $3,398,239

Hernando Rural 7 2020 0 to 2 Urban 0.62 2 1.24 $2,064,688 $1,665,071

Count: 25 105.44 $295,917,283 $2,806,499

URBAN & RURAL Counties; Curb & Gutter

Count: 37 160.68 $499,312,233 $3,107,495 Total (2013-2020); Urban & Rural Counties

Total (2013-2020); Urban Counties ONLY

4.60 $8,616,236 $1,873,095

Cortez Blvd Frontage Rd @ I-75

Total (2013-2020); Rural Counties ONLY


Construction Engineering/Inspection

County Roadways

The CEI cost factor for county roads is estimated as a percentage of the construction cost per

lane mile. This factor is determined based on a review of CEI-to-construction cost ratios from

recent projects in Flagler County and from previously completed transportation impact fee

studies throughout Florida. For local estimates, a single recent project (Old Kings Rd Ext. from

Forest Grove Dr to Matanzas Woods Pkwy) was observed, with a CEI-to-construction ratio of 12

percent (Table D-8). For county roadways throughout Florida, the CEI factors ranged from three

(3) percent to 17 percent with a weighted average of nine (9) percent (Table D-9). For purposes

of this study, the CEI cost for county roads is calculated at 9 percent of the construction cost per

lane mile, providing a conservative estimate when compared to a recent local improvement.


Table D-8

CEI Cost Factor – Flagler County Local Roadway Improvements


Table D-9

CEI Cost Factor for County Roads – Recent Impact Fee Studies



Added

Lane Miles

AddedCEI Construction

CEI/

Construction


CEI Constr. CEI Ratio

2013 Hernando $178,200 $1,980,000 9%

2013 Charlotte $220,000 $2,200,000 10%

2014 Indian River $143,000 $1,598,000 9%

2015 Collier $270,000 $2,700,000 10%

2015 Brevard $344,000 $2,023,000 17%

2015 Sumter $147,000 $2,100,000 7%

2015 Marion $50,000 $1,668,000 3%

2015 Palm Beach $108,000 $1,759,000 6%

2017 St. Lucie $198,000 $2,200,000 9%

2017 Clay $191,000 $2,385,000 8%

2019 Collier $315,000 $3,500,000 9%

2019 Sumter $258,000 $2,862,000 9%

2020 Indian River $238,000 $2,647,000 9%

2020 Hillsborough $363,000 $4,036,000 9%

2020 Hernando $189,000 $2,108,000 9%

$197,000 $2,192,000 9%

Year CountyCounty Roadways (Cost per Lane Mile)

Average


Roadway Capacity

As shown in Table D-10, the average capacity per lane mile is based on county roadway projects

in the 2045 Long Range Transportation Plan’s Cost Feasible Plan. This listing of projects reflects

the mix of improvements that will yield the vehicle-miles of capacity (VMC) that will be built in

Flagler County. The resulting weighted average capacity per lane mile of approximately 12,800

was used in the transportation impact fee calculation.


Table D-10

River to Sea TPO’s 2045 Long Range Transportation Plan – Cost Feasible Plan

Source: River to Sea TPO’s 2045 LRTP Cost Feasible Plan and the Flagler County Planning and Zoning Department * C&G = curb & gutter. OD = open drainage

Jurisdiction County Description From To Improvement LengthLanes

Added

Lane

Miles

Added

Section

Design*

Initial

Capacity

Future

Capacity

Added

Capacity

Vehicle

Miles of

Capacity

Added

Other Arterial Cost Feasible Projects (State/Federal Funding)

Non-State Flagler Old Kings Rd Palm Harbor Village Pkwy Farnum Ln 2 to 4 Lanes 1.44 2 2.88 C&G 14,580 31,950 17,370 25,013

Non-State Flagler Old Kings Rd Farnum Ln Forest Grove Dr 2 to 4 Lanes 1.58 2 3.16 C&G 14,580 31,950 17,370 27,445

Non-State Flagler Old Kings Rd Ext. Ph. II Matanzas Woods Pkwy Old Kings Rd 0 to 2 Lanes 0.82 2 1.64 C&G 0 14,580 14,580 11,956

Non-State Flagler Commerce Pkwy Connector SR 5 (US 1) SR 100 0 to 2 Lanes 1.50 2 3.00 OD 0 14,580 14,580 21,870

Non-State Flagler Matanzas Woods Pkwy SR 5 (US 1) I-95 2 to 4 Lanes 2.00 2 4.00 C&G 14,580 31,950 17,370 34,740

Non-State Major Roadway Needs

Non-State Flagler Matanzas Woods Pkwy I-95 Old Kings Rd Add 2 Lanes 0.35 2 0.70 C&G 14,580 31,950 17,370 6,080

Non-State Flagler Palm Coast Pkwy SR 5 (US 1) Belle Terre Pkwy Add 2 Lanes 1.67 2 3.34 C&G 14,580 31,950 17,370 29,008

Non-State Flagler Old Kings Rd Town Center Blvd Kingswood Dr Add 2 Lanes 4.35 2 8.70 OD 21,960 56,610 34,650 150,728

Non-State Flagler Old Kings Rd Old Dixie Hwy SR 100 Add 2 Lanes 4.70 2 9.40 C&G 21,960 56,610 34,650 162,855

36.82 469,695

36.82 100% (a) 469,695

0.00 0% (b) 0

25.12 70% (c) -

11.70 30% (d) -

VMC Added per Lane Mile: 12,800

Total (All Roads):

Non-State Roads:

State Roads:

Affordable Projects - Curb & Gutter:

Affordable Projects - Open Drainage:

Appendix E


Credit Component

Tindale Oliver Flagler County June 2021 E-1 Impact Fee Update Study

Appendix E: TIF - Credit Component

This appendix presents the detailed calculations for the credit component. Local fuel taxes that

are collected in Flagler County are listed below, along with a few pertinent characteristics of each.

1. Constitutional Fuel Tax (2¢/gallon)

• Tax applies to every net gallon of motor and diesel fuel sold within a county. Collected in

accordance with Article XII, Section 9 (c) of the Florida Constitution.

• The State allocated 80 percent of this tax to Counties after first withholding amounts

pledged for debt service on bonds issued pursuant to provisions of the State Constitution

for road and bridge purposes.

• The 20 percent surplus can be used to support the road construction program within the

county.

• Counties are not required to share the proceeds of this tax with their municipalities.

2. County Fuel Tax (1¢/gallon)

• Tax applies to every net gallon of motor and diesel fuel sold within a county.

• Primary purpose of these funds is to help reduce a County’s reliance on ad valorem taxes.

• Proceeds are to be used for transportation-related expenses, including the reduction of

bond indebtedness incurred for transportation purposes. Authorized uses include

acquisition of rights-of-way; the construction, reconstruction, operation, maintenance,

and repair of transportation facilities, roads, bridges, bicycle paths, and pedestrian

pathways; or the reduction of bond indebtedness incurred for transportation purposes.


3. Ninth-Cent Fuel Tax (1¢/gallon)


• Proceeds may be used to fund transportation expenditures.

• To accommodate statewide equalization, this tax is automatically levied on diesel fuel in

every county, regardless of whether a County is levying the tax on motor fuel at all.


4. 1st Local Option Tax (up to 6¢/gallon)


• Proceeds may be used to fund transportation expenditures.


• To accommodate statewide equalization, all six cents are automatically levied on diesel

fuel in every county, regardless of whether a county is levying the tax on motor fuel at all

or at the maximum rate.

• Proceeds are distributed to a county and its municipalities according to a mutually agreed

upon distribution ratio, or by using a formula contained in the Florida Statutes.

Each year, the Florida Legislature’s Office of Economic and Demographic Research (EDR)

produces the Local Government Financial Information Handbook, which details the estimated

local government revenues for the upcoming fiscal year. Included in this document are the

estimated distributions of the various fuel tax revenues for each county in the state. The 2020-

21 data represent projected fuel tax distributions to Flagler County for the current fiscal year.

Table E-1 shows the distribution per penny for each of the fuel levies, and then the calculation of

the weighted average for the value of a penny of fuel tax. The weighting procedure takes into

account the differing amount of revenues generated for the various types of fuel taxes. It is

estimated that approximately $502,000 of annual revenue will be generated for the County from

one penny of fuel tax in Flagler County. For use in the impact fee calculation, the fuel tax revenue

data is used to calculate the value per penny (per gallon of fuel) that is used to estimate the

“equivalent pennies” of other revenue sources used to fund transportation.

Table E-1

Estimated Fuel Tax Distribution Allocated to Capital Programs for

Flagler County & Municipalities, FY 2020-21(1)

1) Source: Florida Legislature’s Office of Economic and Demographic Research,

http://edr.state.fl.us/content/local-government/reports/ -- 2) The weighted average distribution per penny is calculated by taking the sum of the total

distribution and dividing that value by the sum of the total levies per gallon (multiplied by 100)

TaxAmount of Levy

per Gallon

Total

Distribution

Distribution

per Penny

Constitutional Fuel Tax $0.02 $1,178,523 $589,262

County Fuel Tax $0.01 $519,143 $519,143

9th Cent Fuel Tax $0.01 $501,566 $501,566

1st Local Option (1-6 cents) $0.06 $2,819,127 $469,855

Total $0.10 $5,018,359

Weighted Average per Penny(2) $501,836

http://edr.state.fl.us/content/local-government/reports/



A revenue credit for the annual expenditures on roadway capacity-expansion projects in Flagler

County is presented below. The components of the credit are as follows:

• County capital project funding

• State capital project funding

The annual expenditures from each revenue source are converted to equivalent fuel tax pennies

to be able to create a connection between travel by each land use and non-impact fee revenue

contributions.

County Capital Project Funding

A review of Flagler County’s 5-year planned expenditures shows that fuel tax revenues are being

used for operations and maintenance needs and that the County is not contributing towards

capacity expansion improvements. Therefore, no County credit is included in the transportation

impact fee calculation.

State Capital Project Funding

In the calculation of the equivalent pennies of fuel tax from the State, funding on transportation

capacity-expansion projects spanning a 15-year period (from FY 2011 to FY 2025) were reviewed.

This included capacity expansion projects such as lane additions, new road construction,

intersection improvements, interchanges, traffic signal projects, dirt road paving, and other

capacity-addition projects. However, only state funding for county roadways improvements

were considered for the impact fee credit.

The total cost of the transportation capacity-expansion county road projects:

• FY 2011-2015 work plan equates to 3.0 pennies



The combined weighted average over the historical 16-year period of state expenditure for

capacity-expansion county roadway projects results in a total of 2.9 equivalent pennies. Table E-

2 documents this calculation. The specific projects that were used in the equivalent penny

calculations are summarized in Table E-3.


Table E-2

State Fuel Tax Equivalent Pennies

1) Source: Table E-3 2) Source: Table E-3 3) Source: Table E-3 4) Source: Table E-1 5) Cost of projects divided by number of years divided by revenue from 1 penny (Item 2) divided by 100

SourceCost of

Projects

Number of

Years

Revenue from

1 Penny(4)

Equivalent

Pennies(5)

Projected Work Program (FY 2021-2025)(1) $11,149,859 5 $501,836 $0.044

Historical Work Program (FY 2016-2020)(2) $2,928,667 5 $501,836 $0.012

Historical Work Program (FY 2011-2015)(3)

$9,127,888 6 $501,836 $0.030

Total $23,206,414 16 $501,836 $0.029


Table E-3

Florida Department of Transportation, District 5 – Flagler County Work Program FY 2011 to FY 2025

Source: FDOT, District 5

Item Item Description Work Mix Description FY 2011 FY 2012 FY 2013 FY 2014 FY 2015 FY 2016 FY 2017 FY 2018 FY 2019 FY 2020 FY 2021 FY 2022 FY 2023 FY 2024 FY 2025 Total

415962-1 OLD KINGS ROAD FROM MANTANZAS WOODS PARKWAY TO OLD KINGS RD NEW ROAD CONSTRUCTION $0 $0 $1,208,182 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $1,208,182

415962-2 OLD KINGS ROAD FROM FOREST GROVE DR TO MATANZAS WOODS PARKWAY NEW ROAD CONSTRUCTION $0 $0 $0 $0 $5,374,438 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $5,374,438

415964-1 OLD KINGS RD FROM OAK TRAILS BLVD TO FOREST GROVE DRIVE ADD LANES & RECONSTRUCT $0 $0 $2,000,000 $0 $185,000 $1,027,739 $0 $200,000 $0 $0 $0 $0 $0 $0 $0 $3,412,739

430264-1 OLD KINGS RD INTO OLD KINGS ELEMENTARY SCHOOL ADD TURN LANE(S) $360,268 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $360,268

435561-1 OLD KINGS RD EXT PH II FROM MATANZAS WOODS PARKWAY TO OLD KINGS RD NEW ROAD CONSTRUCTION $0 $0 $0 $0 $0 $0 $40,000 $0 $23,928 $0 $0 $0 $0 $0 $0 $63,928

435641-1 WATER OAK ROAD FROM CR 2006 TO MAHOGANY BLVD ROAD RECONSTRUCTION - 2 LANE $0 $0 $0 $0 $0 $0 $0 $285,000 $0 $0 $0 $2,989,859 $0 $0 $0 $3,274,859

437207-1 OTIS STONE HUNTER ROAD FROM CR 13 TO US 1 ROAD RECONSTRUCTION - 2 LANE $0 $0 $0 $0 $0 $0 $0 $0 $0 $415,000 $0 $0 $0 $0 $0 $415,000

437208-1 OTIS STONE HUNTER RD TO E OF THE FLORIDA EAST COAST RAILROAD CROSSING ROAD RECONSTRUCTION - 2 LANE $0 $0 $0 $0 $0 $0 $0 $0 $0 $587,000 $0 $0 $0 $3,550,000 $0 $4,137,000

437209-1 OLD HAW CREEK ROAD FROM CR 304 TO SR 11 ROAD RECONSTRUCTION - 2 LANE $0 $0 $0 $0 $0 $0 $0 $350,000 $0 $0 $0 $0 $4,360,000 $0 $0 $4,710,000

438637-1 WALNUT AVE FROM WATER OAK RD TO FOREST PARK STREET WIDEN/RESURFACE EXIST LANES $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $250,000 $0 $250,000

Total $360,268 $0 $3,208,182 $0 $5,559,438 $1,027,739 $40,000 $835,000 $23,928 $1,002,000 $0 $2,989,859 $4,360,000 $3,800,000 $0 $23,206,414

Sub-Totals FY 2011 - FY 2015: $9,127,888 FY 2016 - FY 2020: $2,928,667 FY 2021 - FY 2025: $11,149,859


Table E-4

Average Motor Fuel Efficiency – Excluding Interstate Travel

22.2 6.6 @ 22.2 mpg @ 6.6 mpg

Other Arterial Rural 330,556,000,000 48,306,000,000 378,862,000,000 87% 13%

Other Rural 304,008,000,000 29,577,000,000 333,585,000,000 91% 9%

Other Urban 1,587,592,000,000 94,800,000,000 1,682,392,000,000 94% 6%

Total 2,222,156,000,000 172,683,000,000 2,394,839,000,000 93% 7%

Gallons @ 22.2 mpg Gallons @ 6.6 mpg 2,394,839 miles (millions)

Other Arterial Rural 14,889,909,910 7,319,090,909 22,209,000,819 126,261 gallons (millions)

Other Rural 13,694,054,054 4,481,363,636 18,175,417,690 18.97 mpg

Other Urban 71,513,153,153 14,363,636,364 85,876,789,517

Total 100,097,117,117 26,164,090,909 126,261,208,026

Source: U.S. Department of Transportation, Federal Highway Administration, Highway Statistics 2019 , Section V, Table VM-1

Annual Vehicle Distance Traveled in Miles and Related Data - 2019 by Highway Category and Vehicle Type

http://www.fhwa.dot.gov/policyinformation/statistics.cfm

Travel

Vehicle Miles of Travel (VMT) @ Percent VMT

Fuel Consumed Total Mileage and Fuel


Table E-9

Annual Vehicle Distance Traveled in Miles and Related Data (2019) – By Highway Category and Vehicle Type1/ Revised: November 2020 TABLE VM-1

ALL LIGHT

VEHICLES(2)

SINGLE-UNIT 2-AXLE

6-TIRE OR MORE

AND COMBINATION

TRUCKS

Motor-Vehicle Travel (millions of vehicle-miles):

2018 Interstate Rural 148,257 1,175 1,717 48,499 10,887 51,110 196,755 61,997 261,644

2018 Other Arterial Rural 234,142 2,607 2,339 96,414 18,238 30,068 330,556 48,306 383,808

2018 Other Rural 210,062 2,835 1,980 93,946 17,043 12,534 304,008 29,577 338,401

2018 All Rural 592,461 6,618 6,036 238,859 46,168 93,712 831,319 139,880 983,853

2018 Interstate Urban 404,357 2,558 2,683 100,785 19,926 45,444 505,142 65,371 575,753

2018 Other Urban 1,257,491 10,512 9,261 330,101 58,652 36,149 1,587,592 94,800 1,702,166

2018 All Urban 1,661,848 13,070 11,944 430,886 78,578 81,593 2,092,734 160,171 2,277,919

2018 Total Rural and Urban(5) 2,254,309 19,688 17,980 669,744 124,746 175,305 2,924,053 300,050 3,261,772

2018Number of motor vehicles

registered(2)194,348,815 8,596,314 995,033 59,465,369 10,160,433 2,925,210 253,814,184 13,085,643 276,491,174

2018 Average miles traveled per vehicle 11,599 2,290 18,070 11,263 12,278 59,929 11,520 22,930 11,797

2018 Person-miles of travel (millions)(4) 3,765,896 22,846 381,176 1,128,489 124,746 175,305 4,894,385 300,050 5,598,457

2018 Fuel consumed (thousand gallons) 93,420,373 447,864 2,450,610 38,028,860 16,656,736 28,986,515 131,449,233 45,643,250 179,990,957

2018Average fuel consumption per

vehicle (gallons)481 52 2,463 640 1,639 9,909 518 3,488 651

2018Average miles traveled per gallon of

fuel consumed24.1 44.0 7.3 17.6 7.5 6.0 22.2 6.6 18.1

(3) Single-Unit - single frame trucks that have 2-Axles and at least 6 tires or a gross vehicle weight rating exceeding 10,000 lbs.

(4) For 2018 and 2019, the vehicle occupancy is estimated by the FHWA from the 2017 National Household Travel Survey (NHTS) and the annual R.L. Polk Vehicle registration data; For single unit truck and heavy trucks, 1 motor

vehicle mile traveled = 1 person-mile traveled.

(5) VMT data are based on the latest HPMS data available; it may not match previous published results.

SINGLE-UNIT

TRUCKS(3)

COMBINATION

TRUCKS

SUBTOTALS

ALL MOTOR

VEHICLES

(1) The FHWA estimates national trends by using State reported Highway Performance and Monitoring System (HPMS) data, fuel consumption data (MF-21 and MF-27), vehicle registration data (MV-1, MV-9, and MV-10), other data

such as the R.L. Polk vehicle data, and a host of modeling techniques.

(2) Light Duty Vehicles Short WB - passenger cars, light trucks, vans and sport utility vehicles with a wheelbase (WM) equal to or less than 121 inches. Light Duty Vehicles Long WB - large passenger cars, vans, pickup trucks, and

sport/utility vehicles with wheelbases (WB) larger than 121 inches. All Light Duty Vehicles - passenger cars, light trucks, vans and sport utility vehicles regardless of wheelbase.

YEAR ITEM

LIGHT DUTY

VEHICLES

SHORT WB(2)

MOTOR-

CYCLESBUSES

LIGHT DUTY

VEHICLES LONG

WB(2)

Appendix F


Calculated Impact Fee Schedule

Tindale Oliver Flagler County June 2021 F-1 Impact Fee Update Study

Appendix F: TIF - Calculated Impact Fee Schedule

This Appendix presents the detailed impact fee calculations for each land use in the Flagler

County transportation impact fee schedule.


Table F-1

Calculated Transportation Impact Fee Schedule

Equivalent Gasoline Tax Unit Cost per Lane Mile: $3,330,000 Interstate/Toll Facility Adjustment Factor: 19.0%

$$ per gallon to capital: $0.029 Average VMC per Lane Mile: 12,800 Cost per VMC: $260.16

Facility life (years): 25 County Revenues: $0.000 Fuel Efficiency: 18.97 mpg

Interest rate: 2.50% State Revenues: $0.029 Effectivedays per year: 365

ITE LUC Land Use Unit Trip Rate Trip Rate SourceInitial Trip

Length

Trip Length

Adjustment

Factor

Assessable Trip

Length

Total Trip

LengthTrip Length Source

Percent

New Trips % New Trips Source Net VMT(1) Net VMT

ADJUSTED(2)

Total

Impact

Cost

Annual

Capital Impr.

Tax

Capital

Improvement

Credit

Net

Road Impact

Fee

Current

Impact Fee(3) % Change

RESIDENTIAL:

Single Family (Detached) - Less than 1,500 sf du 6.96

FL Studies

(NHTS, AHS, Census) 6.62 1.15 7.61 8.11 FL Studies 100% n/a 21.45 9.44 $2,455 $16 $295 $2,160 $1,438 50%

Single Family (Detached) - 1,501 to 2,499 sf du 7.81

FL Studies


Single Family (Detached) - 2,500 sf and greater du 8.83

FL Studies


220 Multi-Family (Low-Rise); 1-2 levels du 7.32 ITE 10th Edition 5.10 1.15 5.87 6.37

FL Studies

(LUC 220/221/222) 100% n/a 17.40 7.66 $1,992 $13 $240 $1,752 $1,400 25%

221 Multi-Family (Mid-Rise); 3-10 levels du 5.44 ITE 10th Edition 5.10 1.15 5.87 6.37

FL Studies

(LUC 220/221/222) 100% n/a 12.93 5.69 $1,480 $10 $184 $1,296 $1,400 -7%

222 Multi-Family (High-Rise); >10 levels du 4.45 ITE 10th Edition 5.10 1.15 5.87 6.37

FL Studies

(LUC 220/221/222) 100% n/a 10.58 4.66 $1,211 $8 $147 $1,064 $1,400 -24%

240 Mobile Home Park du 4.17 FL Studies 4.60 1.15 5.29 5.79 FL Studies 100% n/a 8.93 3.93 $1,023 $7 $129 $894 $508 76%

253 Congregate Care Facility du 2.25

Blend ITE 10th

& FL Studies 3.08 1.15 3.54 4.04 FL Studies 72% FL Studies 2.32 1.02 $266 $2 $37 $229 n/a n/a

LODGING:

310 Hotel room 5.55

Blend ITE 10th

& FL Studies 6.26 1.05 6.57 7.07 FL Studies 66% FL Studies 9.75 4.29 $1,116 $7 $129 $987 $837 18%

320 Motel room 3.35 ITE 10th Edition 4.34 1.05 4.56 5.06 FL Studies 77% FL Studies 4.76 2.09 $545 $4 $74 $471 $455 4%

RECREATION:

411 Public Park acre 0.78 ITE 10th Edition 5.15 1.05 5.41 5.91 Same as LUC 710 90% Based on LUC 710 1.54 0.68 $176 $1 $18 $158 $339 -53%

416 RV Park(4) site 1.62

ITE 10th Edition

(adjusted) 4.60 1.05 4.83 5.33 Same as LUC 240 100% Same as LUC 240 3.17 1.39 $363 $2 $37 $326 n/a n/a

420 Marina berth 2.41 ITE 10th Edition 6.62 1.05 6.95 7.45 Same as LUC 210 90% Based on LUC 710 6.11 2.69 $699 $5 $92 $607 n/a n/a

430 Golf Course hole 3.74 ITE 10th Edition 6.62 1.05 6.95 7.45 Same as LUC 210 90% Based on LUC 710 9.47 4.17 $1,085 $7 $129 $956 n/a n/a

444 Movie Theater screen 114.83

Blend ITE 10th

& FL Studies 2.22 1.05 2.33 2.83 FL Studies 88% FL Studies 95.36 41.96 $10,915 $80 $1,474 $9,441 $6,099 55%

492 Health/Fitness Club 1,000 sf 34.50

ITE 10th Edition

(adjusted)(6) 5.15 1.05 5.41 5.91 Same as LUC 710 94% FL Studies 71.06 31.27 $8,134 $53 $976 $7,158 n/a n/a

INSTITUTIONS:

520 Elementary School (Private) student 1.89 ITE 10th Edition 3.31 1.05 3.48 3.98

50% of LUC 210:

Tavel Demand Model 80%

Based on LUC 710

(adjusted)(7)

2.13 0.94 $244 $2 $37 $207 n/a n/a

522 Middle/Junior High School (Private) student 2.13 ITE 10th Edition 3.31 1.05 3.48 3.98

50% of LUC 210:

Tavel Demand Model 80%

Based on LUC 710

(adjusted)(7) 2.40 1.06 $275 $2 $37 $238 n/a n/a

530 High School (Private) student 2.03 ITE 10th Edition 3.31 1.05 3.48 3.98

50% of LUC 210:

Tavel Demand Model 90% Based on LUC 710 2.57 1.13 $295 $2 $37 $258 n/a n/a

540 University/Junior College (7,500 or fewer students) (Private) student 2.00

ITE Regression

Analysis 6.62 1.05 6.95 7.45 Same as LUC 210 90% Based on LUC 710 5.07 2.23 $580 $4 $74 $506 n/a n/a

550 University/Junior College (more than 7,500 students) (Private) student 1.50

ITE Regression

Analysis 6.62 1.05 6.95 7.45 Same as LUC 210 90% Based on LUC 710 3.80 1.67 $435 $3 $55 $380 n/a n/a

560 Church 1,000 sf 6.95 ITE 10th Edition 3.91 1.05 4.11 4.61

Midpoint of LUC 710 &

LUC 820 (App. A) 90% Based on LUC 710 10.41 4.58 $1,192 $8 $147 $1,045 $785 33%

565 Day Care Center 1,000 sf 49.63

Blend ITE 10th

& FL Studies 2.03 1.05 2.13 2.63 FL Studies 73% FL Studies 31.25 13.75 $3,578 $27 $497 $3,081 $2,850 8%

210


Table F-1 (continued)



Length

Trip Length

Adjustment

Factor

Assessable Trip

Length

Total Trip


Percent

New Trips % New Trips Source Net VMT

(1) Net VMT

ADJUSTED(2)

Total

Impact

Cost

Annual

Capital Impr.

Tax

Capital

Improvement

Credit

Net

Road Impact

Fee

Current


MEDICAL:

610 Hospital 1,000 sf 10.72 ITE 10th Edition 6.62 1.05 6.95 7.45 Same as LUC 210 78%

Midpoint of LUC 310

& LUC 720 23.54 10.36 $2,694 $17 $313 $2,381 $1,618 47%

620 Nursing Home bed 3.02

Blend ITE 10th

& FL Studies 2.59 1.05 2.72 3.22 FL Studies 89% FL Studies 2.96 1.30 $339 $2 $37 $302 $148 104%

OFFICE:

710 General Office 1,000 sf 9.74 ITE 10th Edition 5.15 1.15 5.92 6.42 FL Studies 92% FL Studies 21.48 9.45 $2,459 $16 $295 $2,164 $2,804 -23%

714 Corporate Headquarters Building 1,000 sf 7.95 ITE 10th Edition 5.15 1.15 5.92 6.42 Same as LUC 710 92% Same as LUC 710 17.54 7.72 $2,007 $13 $240 $1,767 $959 84%

720 Medical Office 10,000 sq ft or less 1,000 sf 23.83 FL Studies 5.55 1.15 6.38 6.88 FL Studies 89% FL Studies 54.80 24.11 $6,273 $41 $755 $5,518 $3,606 53%

720 Medical Office greater than 10,000 sq ft 1,000 sf 34.12

Blend ITE 10th


RETAIL:

820 Retail/Shopping Center 1,000 sfgla 37.75 ITE 10th Edition 2.69 1.05 2.82 3.32

Appendix C: Fig. C-1

(450k sfgla) 74%


(450k sfgla) 31.90 14.04 $3,652 $26 $479 $3,173 $3,473 -9%

840/

841 New/Used Auto Sales 1,000 sf 24.58

Blend ITE 10th


849 Tire Superstore bay 30.55 ITE 10th Edition 3.62 1.05 3.80 4.30 Same as LUC 942 72% Same as LUC 942 33.85 14.89 $3,875 $26 $479 $3,396 $1,792 90%

850 Supermarket 1,000 sf 106.64

Blend ITE 10th


851 Convenience Market - 24 hrs 1,000 sf 739.50

Blend ITE 10th


862 Home Improvement Superstore 1,000 sf 30.74 ITE 10th Edition 2.34 1.05 2.46 2.96


(150k sfgla) 65%


(150k sfgla) 19.91 8.76 $2,279 $17 $313 $1,966 $2,336 -16%

880/

881 Pharmacy/Drug Store with & without Drive-Thru 1,000 sf 104.37

Blend ITE 10th


890 Furniture Store 1,000 sf 6.30 ITE 10th Edition 6.09 1.05 6.39 6.89 FL Studies 54% FL Studies 8.80 3.87 $1,008 $7 $129 $879 $411 114%

SERVICES:

911 Bank/Savings Walk-In(5) 1,000 sf 59.39

ITE 10th Edition

(adjusted) 2.46 1.05 2.58 3.08 Same as LUC 912 46% Same as LUC 912 28.55 12.56 $3,268 $23 $424 $2,844 $2,951 -4%

912 Bank/Savings Drive-In 1,000 sf 102.66

Blend ITE 10th

& FL Studies 2.46 1.05 2.58 3.08 FL Studies 46% FL Studies 49.34 21.71 $5,648 $41 $755 $4,893 $7,111 -31%

931 Quality Restaurant 1,000 sf 86.03

Blend ITE 10th


932 High-Turn Over Restaurant 1,000 sf 106.26

Blend ITE 10th


934 Fast Food Restaurant w/Drive-Thru 1,000 sf 482.53

Blend ITE 10th


941 Quick Lubrication Vehicle Shop bay 40.00 ITE 10th Edition 3.62 1.05 3.80 4.30 Same as LUC 942 72% Same as LUC 942 44.32 19.50 $5,074 $35 $645 $4,429 $2,496 77%

942 Automobile Care Center 1,000 sf 28.19

Blend ITE 10th


944 Gas Station w/Convenience Market <2,000 sq ft fuel pos. 172.01 ITE 10th Edition 1.90 1.05 2.00 2.50 FL Studies 23% FL Studies 32.05 14.10 $3,668 $28 $516 $3,152 n/a n/a

945 Gas Station w/Convenience Market 2,000-2,999 sq ft fuel pos. 205.36 ITE 10th Edition 1.90 1.05 2.00 2.50 Same as LUC 944 23% Same as LUC 944 38.26 16.83 $4,379 $33 $608 $3,771 n/a n/a

960 Gas Station w/Convenience Market 3,000+ sq ft fuel pos. 230.52 ITE 10th Edition 1.90 1.05 2.00 2.50 Same as LUC 944 23% Same as LUC 944 42.95 18.90 $4,916 $37 $682 $4,234 n/a n/a

n/a Gasoline/Convenience w/Fast Food 1,000 sf 984.59 FL Studies 2.65 1.05 2.78 3.28 FL Studies 32% FL Studies 354.74 156.09 $40,606 $288 $5,306 $35,300 $17,852 98%


Table F-1 (continued)


1) Net VMT calculated as ((Trip Generation Rate* Trip Length* % New Trips)*(1-Interstate/Toll Facility Adjustment Factor)/2). This reflects the unit of vehicle miles of capacity consumed per unit of development and is multiplied by the cost per vehicle 2) Net VMT (Item 1) multiplied by the state road adjustment factor (44%) 3) Source: Flagler County Planning & Zoning Department 4) The ITE 10th Edition trip generation rate was adjusted to reflect the average occupancy rate of 60 percent based on data provided by the Florida Association of RV Parks and Campgrounds 5) The ITE 10th Edition trip generation rate for PM Peak Hour of Adjacent Traffic was adjusted by the ratio of Daily to PM Peak Hour for LUC 912 to approximate a Daily TGR 6) The ITE 10th Edition trip generation rate for PM Peak Hour of Adjacent Traffic was adjusted by a factor of 10 to approximate the Daily TGR 7) The percent new trips for schools was estimated at 90% based on LUC 710, but was then adjusted to 80% to provide a conservative fee rate. This adjustment reflects the nature of elementary and middle school uses where attendees are unable to drive and are

typically dropped off by parents on their way to another destination


Length

Trip Length

Adjustment

Factor

Assessable Trip

Length

Total Trip


Percent

New Trips % New Trips Source Net VMT(1) Net VMT

ADJUSTED(2)

Total

Impact

Cost

Annual

Capital Impr.

Tax

Capital

Improvement

Credit

Net

Road Impact

Fee

Current


INDUSTRIAL:

110 General Light Industrial 1,000 sf 4.96 ITE 10th Edition 5.15 1.05 5.41 5.91 Same as LUC 710 92% Same as LUC 710 10.00 4.40 $1,144 $8 $147 $997 $794 26%

130 Industrial Park 1,000 sf 3.37 ITE 10th Edition 5.15 1.05 5.41 5.91 Same as LUC 710 92% Same as LUC 710 6.79 2.99 $778 $5 $92 $686 $1,444 -53%

140 Manufacturing 1,000 sf 3.93 ITE 10th Edition 5.15 1.05 5.41 5.91 Same as LUC 710 92% Same as LUC 710 7.92 3.48 $907 $6 $111 $796 $440 81%

150 Warehousing 1,000 sf 1.74 ITE 10th Edition 5.15 1.05 5.41 5.91 Same as LUC 710 92% Same as LUC 710 3.51 1.54 $401 $3 $55 $346 $560 -38%

151 Mini-Warehouse 1,000 sf 1.49

Blend ITE 10th

& FL Studies 3.51 1.05 3.69 4.19

Average of LUC 710 &

LUC 820 (50k sq ft) 92% Same as LUC 710 2.05 0.90 $234 $2 $37 $197 $279 -29%

CHAPTER 2021-63

Committee Substitute for Committee Substitute forCommittee Substitute for House Bill No. 337

An act relating to impact fees; amending s. 163.31801, F.S.; defining theterms “infrastructure” and “public facilities”; requiring local governmentsand special districts to credit against the collection of impact fees anycontribution related to public facilities or infrastructure; providingconditions under which credits may not be applied; providing limitationson impact fee increases; providing for retroactive operation; requiringspecified entities to submit an affidavit attesting that impact fees wereappropriately collected and expended; providing that impact fee creditsare assignable and transferable regardless of when they the credits wereestablished; requiring school districts to report specified informationregarding impact fees; providing a directive to the Division of LawRevision; providing an effective date.

Be It Enacted by the Legislature of the State of Florida:

Section 1. Section 163.31801, Florida Statutes, is amended to read:

163.31801 Impact fees; short title; intent; minimum requirements;audits; challenges.—

(1) This section may be cited as the “Florida Impact Fee Act.”

(2) The Legislature finds that impact fees are an important source ofrevenue for a local government to use in funding the infrastructurenecessitated by new growth. The Legislature further finds that impactfees are an outgrowth of the home rule power of a local government toprovide certain services within its jurisdiction. Due to the growth of impactfee collections and local governments’ reliance on impact fees, it is the intentof the Legislature to ensure that, when a county or municipality adopts animpact fee by ordinance or a special district adopts an impact fee byresolution, the governing authority complies with this section.

(3) For purposes of this section, the term:

(a) “Infrastructure” means a fixed capital expenditure or fixed capitaloutlay, excluding the cost of repairs or maintenance, associated with theconstruction, reconstruction, or improvement of public facilities that have alife expectancy of at least 5 years; related land acquisition, land improve-ment, design, engineering, and permitting costs; and other related con-struction costs required to bring the public facility into service. The term alsoincludes a fire department vehicle, an emergency medical service vehicle, asheriff’s office vehicle, a police department vehicle, a school bus as defined ins. 1006.25, and the equipment necessary to outfit the vehicle or bus for its

1CODING: Words stricken are deletions; words underlined are additions.

Attachment 2

official use. For independent special fire control districts, the term includesnew facilities as defined in s. 191.009(4).

(b) “Public facilities” has the same meaning as in s. 163.3164 andincludes emergency medical, fire, and law enforcement facilities.

(4)(3) At a minimum, each local government that adopts and collects animpact fee by ordinance and each special district that adopts, collects, andadministers an impact fee by resolution must an impact fee adopted byordinance of a county or municipality or by resolution of a special districtmust satisfy all of the following conditions:

(a) Ensure that the calculation of the impact fee is must be based on themost recent and localized data.

(b) The local government must Provide for accounting and reporting ofimpact fee collections and expenditures and. If a local governmental entityimposes an impact fee to address its infrastructure needs, the entity mustaccount for the revenues and expenditures of such impact fee in a separateaccounting fund.

(c) Limit administrative charges for the collection of impact fees must belimited to actual costs.

(d) The local government must Provide notice at least not less than 90days before the effective date of an ordinance or resolution imposing a new orincreased impact fee. A local government county or municipality is notrequired to wait 90 days to decrease, suspend, or eliminate an impact fee.Unless the result is to reduce the total mitigation costs or impact feesimposed on an applicant, new or increased impact fees may not apply tocurrent or pending permit applications submitted before the effective date ofan ordinance or resolution imposing a new or increased impact fee.

(e) Ensure that collection of the impact fee may not be required to occurearlier than the date of issuance of the building permit for the property thatis subject to the fee.

(f) Ensure that the impact fee is must be proportional and reasonablyconnected to, or has have a rational nexus with, the need for additionalcapital facilities and the increased impact generated by the new residentialor commercial construction.

(g) Ensure that the impact fee is must be proportional and reasonablyconnected to, or has have a rational nexus with, the expenditures of thefunds collected and the benefits accruing to the new residential ornonresidential construction.

(h) The local government must Specifically earmark funds collectedunder the impact fee for use in acquiring, constructing, or improving capitalfacilities to benefit new users.

Ch. 2021-63 LAWS OF FLORIDA Ch. 2021-63


(i) Ensure that revenues generated by the impact fee are may not beused, in whole or in part, to pay existing debt or for previously approvedprojects unless the expenditure is reasonably connected to, or has a rationalnexus with, the increased impact generated by the new residential ornonresidential construction.

(5)(a)(4) Notwithstanding any charter provision, comprehensive planpolicy, ordinance, development order, development permit, or resolution, thelocal government or special district must credit against the collection of theimpact fee any contribution, whether identified in a proportionate shareagreement or other form of exaction, related to public education facilities orinfrastructure, including land dedication, site planning and design, orconstruction. Any contributionmust be applied on a dollar-for-dollar basis atfair market value to reduce any education-based impact fee collected for thegeneral category or class of public facilities or infrastructure for which thecontribution was made fees on a dollar-for-dollar basis at fair market value.

(b) If a local government or special district does not charge and collect animpact fee for the general category or class of public facilities or infra-structure contributed, a credit may not be applied under paragraph (a).

(6)(5) A local government, school district, or special district may increasean impact fee only as provided in this subsection.

(a) An impact fee may be increased only pursuant to a plan for theimposition, collection, and use of the increased impact fees which complieswith this section.

(b) An increase to a current impact fee rate of not more than 25 percent ofthe current rate must be implemented in two equal annual incrementsbeginning with the date on which the increased fee is adopted.

(c) An increase to a current impact fee rate which exceeds 25 percent butis not more than 50 percent of the current rate must be implemented in fourequal installments beginning with the date the increased fee is adopted.

(d) An impact fee increase may not exceed 50 percent of the currentimpact fee rate.

(e) An impact fee may not be increased more than once every 4 years.

(f) An impact fee may not be increased retroactively for a previous orcurrent fiscal or calendar year.

(g) A local government, school district, or special district may increase animpact fee rate beyond the phase-in limitations established under para-graph (b), paragraph (c), paragraph (d), or paragraph (e) by establishing theneed for such increase in full compliance with the requirements of subsection(4), provided the following criteria are met:



1. A demonstrated need study justifying any increase in excess of thoseauthorized in paragraph (b), paragraph (c), paragraph (d), or paragraph (e)has been completed within the 12 months before the adoption of the impactfee increase and expressly demonstrates the extraordinary circumstancesnecessitating the need to exceed the phase-in limitations.

2. The local government jurisdiction has held not less than two publiclynoticed workshops dedicated to the extraordinary circumstances necessitat-ing the need to exceed the phase-in limitations set forth in paragraph (b),paragraph (c), paragraph (d), or paragraph (e).

3. The impact fee increase ordinance is approved by at least a two-thirdsvote of the governing body.

(h) This subsection operates retroactively to January 1, 2021.

(7) If an impact fee is increased a local government increases its impactfee rates, the holder of any impact fee credits, whether such credits aregranted under s. 163.3180, s. 380.06, or otherwise, which were in existencebefore the increase, is entitled to the full benefit of the intensity or densityprepaid by the credit balance as of the date it was first established. Thissubsection shall operate prospectively and not retrospectively.

(8)(6) A local government, school district, or special district must submitwith its annual financial report required under s. 218.32 or its financialaudit report required under s. 218.39 a separate affidavit signed by its chieffinancial officer or, if there is no chief financial officer, its executive officerattesting, to the best of his or her knowledge, that all impact fees werecollected and expended by the local government, school district, or specialdistrict, or were collected and expended on its behalf, in full compliance withthe spending period provision in the local ordinance or resolution, and thatfunds expended from each impact fee account were used only to acquire,construct, or improve specific infrastructure needs Audits of financialstatements of local governmental entities and district school boards whichare performed by a certified public accountant pursuant to s. 218.39 andsubmitted to the Auditor General must include an affidavit signed by thechief financial officer of the local governmental entity or district school boardstating that the local governmental entity or district school board hascomplied with this section.

(9)(7) In any action challenging an impact fee or the government’s failureto provide required dollar-for-dollar credits for the payment of impact fees asprovided in s. 163.3180(6)(h)2.b., the government has the burden of provingby a preponderance of the evidence that the imposition or amount of the feeor credit meets the requirements of state legal precedent and this section.The court may not use a deferential standard for the benefit of thegovernment.

(10)(8) Impact fee credits are assignable and transferable at any timeafter establishment from one development or parcel to any other that is



within the same impact fee zone or impact fee district or that is within anadjoining impact fee zone or impact fee district within the same localgovernment jurisdiction and which receives benefits from the improvementor contribution that generated the credits. This subsection applies to allimpact fee credits regardless of whether the credits were established beforeor after the effective date of this act.

(11)(9) A county, municipality, or special district may provide anexception or waiver for an impact fee for the development or constructionof housing that is affordable, as defined in s. 420.9071. If a county,municipality, or special district provides such an exception or waiver, it isnot required to use any revenues to offset the impact.

(12)(10) This section does not apply to water and sewer connection fees.

(13)(11) In addition to the items that must be reported in the annualfinancial reports under s. 218.32, a local government, school district county,municipality, or special district must report all of the following informationdata on all impact fees charged:

(a) The specific purpose of the impact fee, including the specificinfrastructure needs to be met, including, but not limited to, transportation,parks, water, sewer, and schools.

(b) The impact fee schedule policy describing the method of calculatingimpact fees, such as flat fees, tiered scales based on number of bedrooms, ortiered scales based on square footage.

(c) The amount assessed for each purpose and for each type of dwelling.

(d) The total amount of impact fees charged by type of dwelling.

(e) Each exception and waiver provided for construction or developmentof housing that is affordable.

Section 2. The Division of Law Revision is directed to replace the phrase“the effective date of this act” wherever it occurs in this act with the date theact becomes a law.

Section 3. This act shall take effect upon becoming a law.

Approved by the Governor June 4, 2021.

Filed in Office Secretary of State June 4, 2021.



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