10-08-96
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CITY OF DELRAY BEACH. FLORIDA - CITY COMMISSION
SPECIAL/WORKSHOP MEETING - OCTOBER 8, 1996 - 6:00 P.M.
FIRST FLOOR CONFERENCE ROOM
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The City will furnish appropriate auxiliary aids and services
to afford an individual with a disability an opportunity to
participate in and enjoy the benefits of a service, program or
activity conducted by the City. Contact Doug Randolph at 243-7127
(voice) or 243-7199 (TDD) , 24 hours prior to the event in order
for the City to accommodate your request. Adaptive listening
devices are available for meetings in the Commission Chambers.
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SPECIAL MEETING AGENDA
¢ ¡HAY GROUP STUDY/RESOLUTION NO. 75-96: Consider acceptance
of the final Hay Group Classification and Compensation Study
and approval of Resolution No. 75-96 adjusting the FY
1996/97 budget/to incorporate same.
0 EVALUATION/~ITY MANAGER.
~ff)KJbp 1Ia;t¡
Alison MacGregor Harty
City Clerk
WORKSHOP AGENDA
0 iathy Daley - Direction for the 1997 iegislative Agenda.
(Representative William Andrews and Representative Suzanne
Jacobs are also expected to attend the meeting.)
~ ~orth Federal Highway Redevelopment Plan.
(3 ) Direction regarding Sunday gatherings. (~~~)
(4 ) Commission Comments.
a. City Manager
b. City Attorney
c. City Commission
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Please be advised that if a person decides to appeal any decision
made by the City Commission with respect to any matter considered
at this meeting, such person will need to ensure that a verbatim
record includes the testimony and evidence upon which the appeal
is based. The City neither provides nor prepares such record.
MEMORANDUM
'ID: David T. Harden, City Manager
FROM: Alison MacGregor Harty, City Clerk
SUBJECT: Commission Conunents from 10/8/96 Workshop
DA'IE : October 9, 1996
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Mr. Egan:
Asked if there are any major problems with the garbage swi tchover to
BFI?
Lula Butler responded that there have been problems. City staff is
meeting with BFI management staff on Friday morning, 10/11/96, in an effort
to get a handle on service problems. Complaints should be referred to Code
Enforcement. Right now we 're receiving an average of 250 calls per day.
Ms. Kiselewski:
Reported she was at the beach over the weekend when it was really
rough and noticed that some of the 'No SWimming' flags that were up were so
faded that they looked yellow, so that it looked like a caution instead of
a warning. Also, the American flag at Veterans Park looks a little shabby.
Mayor Al perin:
Noted the 'Educator of the Century Award' luncheon to be held on
Monday, October 28, 1996. Looking for a good turnout from the Commission
in support.
From the quarterly board attendance, noted situations on Code
Enforcement Board and Civil Service Board. PLEASE SEE ATrACHED REPORT.
Conunented on a huge report from the Waterway Assistance Program. City
Manager noted this is probably the proposed F. I. N. D. regulations discussed
earlier in the meeting by Kathy Daley. There is a meeting coming up which
John Walker needs to be aware of.
Informed everyone about the death of Carol Lewis I husband. Asked to
have a card sent on behalf of Commission. Friends may visit with Carol at
home, 4035 N.W. 7th Court in Delray, on Thursday, October 10th, between 6
and 7:00 p.m.
Inquired alx>ut the possibility of using ISTEA funds for having a
survey done of a four or five block area, including our two parks and the
Sandoway House, for the installation of a sidewalk along the west side of
AlA? Would this qualify and are funds available for this purpose?
Reported that he has had discussions with Rev. Johnson about
attendance and accessibility issues concerning the Housing Authority.
Expects a letter of resignation to be subnitted soon.
MEMORANDUM
'ID: MAYOR AND CITY CCMMISSIONERS
FROM: CITY MANAGER t},i I
SUBJECI' : AGENDA I'!EM # S' P. I. - SPECIAL MEETING OF OC'IOBER 8 I 1996
HAY GROUP STUDY
DA'IE : OC'IOBER 4, 1996
At the October 1 st regular meeting, it was noted that Section IV. of the
Hay Group Study I the Human Resources Organizational Assessment, was not
included in the report copies which had been provided to the Commission.
This section was provided to the City under separate cover from the balance
of the study. It is attached for your review.
At this time I am not requesting that the Commission approve the entire Hay
Group Study. I am sorry that the October 1st agenda did not clearly state
what the Commission was being asked to approve.
Included in the backup materials are charts which show the existing salary
plan compared to Hay Group I s reconutlended salary structure. I request, and
recommend, that the Commission approve the Reconunended Salary Structure for
Directors, for Exempt General (Civil Service) Employees and for Non-Exempt
General (Civil Service) Employees, recognizing that there will bea few
changes resulting from the appeals process.
Furthermore, I reconutlend that the Commission adopt Resolution No. 75-96
amending our Fiscal 1997 budget in order to acconunodate implementation of
the revised salary structure.
The balance of the Hay Group Study should simply be received and referred
to staff for further study and recommendations at a later date.
.~~ :à/ /~ui?
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(1Jt?,~~~)
ref:agmem04
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RESOLUTION NO. 75-96
A RESOLUTION OF THE CITY COMMISSION OF THE CITY OF
DELRAY BEACH, FLORIDA, AMENDING RESOLUTION NO. 72-96
WHICH MADE APPROPRIATIONS OF SUMS OF MONEY FOR ALL
NECESSARY EXPENDITURES OF THE CITY OF DELRAY BEACH,
FLORIDA, FOR THE FISCAL YEAR 1996/97, BY SETTING
FORTH THE ANTICIPATED REVENUES AND EXPENDITURES FOR
THE OPERATING FUNDS OF THE CITY FOR THE FISCAL YEAR
1996/97; TO REPEAL ALL RESOLUTIONS INCONSISTENT
HEREWITH.
NOW, THEREFORE, BE IT RESOLVED BY THE CITY COMMISSION OF THE
CITY OF DELRAY BEACH, FLORIDA, AS FOLLOWS:
Section 1. That Section 1. of Resolution No. 72-96 is
hereby repealed, and a new Section 1. is enacted and amended to read ,
,
as follows:
That the following sums of money, attached hereto and marked
Exhibit "A" , are hereby appropriated upon the terms and conditions
herein set forth.
Section 2. That, subject to the qualifications contained in
this resolution, all appropriations made out of the General Fund are
declared to be maximum, conditional, and proportionate appropriations,
the purpose being to make the appropriations payable in full in the
amounts herein named if necessary and then only in the event the
aggregate revenues collected and other resources available during the
period commencing the 1st day of October, 1996, and ending the 30th
day of September, 1997, for which the appropriations are made, are
sufficient to pay all the appropriations in full. Otherwise, said
appropriations shall be deemed to be payable in such proportion as the
total sum of realized revenue of the General Fund is to the total ,
i
amount of revenues estimated by the City Commission to be available in
the period commencing the 1st day of October, 1996, and ending the
30th day of September, 1997. I
i
,
Section 3. That all balances of the appropriations payable
out of the General Fund of the City Treasury unencumbered at the close
of business on the 30th day of September, 1996, except as otherwise
provided for, are hereby declared to be lapsed into the City Treasury ,
and may be used for the payment of the appropriations which may be
made in any appropriation for the fiscal year commencing the 1st day
of October, 1996. Provided, however, nothing in this section shall be
construed to be applicable to unencumbered balances remaining to the
credit of the Water and Sewer Fund, Sanitation Fund or any Fund
created by the setting up of special revenue, but such balances shall
be used in financing the proposed expenditures of these Funds for the
fiscal year commencing the 1st day of October, 1996.
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Section 4. That no department, bureau, agency or individual
receiving appropriations under the provisions of this resolution shall
exceed the amount of its appropriation, except with the consent and
approval of the City Commission first obtained. If such department, i
bureau, agency or individual shall exceed the amount of its
appropriation without such consent and approval of the City i
I
Commission, the administrative officer or individual, in the i
I
discretion of the City Commission, may be deemed guilty of neglect of
official duty and may be subject to removal therefor.
Section 5. That nothing in this resolution shall be
construed as authorizing any reduction to be made in the amounts
appropriated in this resolution for the payment of interest on, or
retirement of, the debt of the City of Delray Beach, Florida.
Section 6. That none of the monies enumerated in this
resolution in connection with the General Fund, Water and Sewer Fund,
Sanitation Fund or any other Fund of the City shall be expended for
any purposes other than those for which they are appropriated, and it
shall be the duty of the Budget Administrator and/or Finance Director
to report known violations of this section to the City Manager. I
Section 7. That all monies collected by any department,
bureau, agency or individual of the City government shall be paid
promptly into the City Treasury.
Section 8. That the foregoing budget is hereby adopted as ,
I
the official budget of the City of Delray Beach, Florida, for the ,
aforesaid period. However, the restrictions with respect to the I
I
I
expenditures/expenses of the funds appropriated shall apply only to I
,
the lump sum amounts for classes of expenditures/expenses which have !
i
been included in this resolution. I
I
Section 9. That public hearings were held on the tax levy
and the budget on September 3, 1996, and September 17, 1996.
Section 10. That this resolution shall become effective
immediately upon passage.
PASSED AND ADOPTED in special session on this the 8th day of
October, 1996. I
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ATTEST:
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Clty erk
- 2 - Res. No. 75-96
AMENDED
EXHIBIT A
BUDGET SUMMARY
CITY OF DELRA Y BEACH, FLORIDA - FISCAL YEAR 1997
DOWNTOWN SPECIAL
GENERAL DEVELOPMENT ENTERPRISE REVENUE
FUND FUND FUNDS FUNDS TOTAL
CASH BALANCES BROUGHT FORWARD 60,830 40,000 2,323,000 93,770 2,517,600
ESTIMATED REVENUES:
TAXES Millage Per $1,000
AD VALOREM TAXES 6.95 17,395,220 17,395,220
AD VALOREM TAXES 0.90 2,252,620 2,252,620
AD VALOREM-DELINQUENT 111,340 111,340
AD VALOREM - DDA 1.00 94,070 94,070
Sales & Use Taxes 1,525,600 1,525,600
Franchise Taxes 2,927,000 2,927,000
Utility Taxes 5,010,000 5,010,000
Licenses & Permits 1,804,020 1,804,020
Intergovernmental 4,869,510 49,390 1,633,030 6,551,930
Charges for Services 3,414,950 25,104,880 28,519,830
Fines & Forfeitures 475,700 475,700
Miscellaneous Revenues 2,885,750 4,330 3,673,450 23,000 6,586,530
Other Financing Sources 2,219,280 412,560 775,990 3,407,830
TOTAL REVENUES AND OTHER
FINANCING SOURCES 44,890,990 98,400 29,240,280 2,432,020 76,661,690
TOTAL ESTIMATED REVENUES
AND BALANCES 44,951,820 138,400 31,563,280 2,525,790 79,179,290
EXPENDITURES/EXPENSES:
General Government Services 5,119,870 5,119,870
Public Safety 24,935,040 24,935,040
Physical Environment 293,360 19,787,240 20,080,600
Transportation 1,272,230 1,272,230
Economic Environment 698,510 90,200 1.778,710 2,567,420
Human Services 170,030 170,030
Culture & Recreation 6,118,950 2,714,350 370,380 9,203,680
Debt Service 2,878,450 4,932,350 298,040 8,108,840
Other Financing Uses 3,388,610 3,497,900 6,886,510
TOTAL EXPENDITURES/EXPENSES 44.875,050 90,200 30,931,840 2,447,130 78,344,220
Reserves 76,770 48,200 631,440 78,660 835,070
TOTAL EXPENDITURES AND RESERVES 44,951,820 138,400 31,563.280 2,525,790 79,179,290
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:
HUMAN RESOURCES
ORGANIZATIONAL ASSESSMENT
September 18, 1996
The Human Resources Department within the City of Delray Beach is headed by a
Director and staffed with, including the Director, five full-time employees. The Human
Resources Department administers programs and policies and advises and counsels City
managers and employees on personnel related matters. Specifically, the staff is charged
with general personnel administration; staff and program development, inclusive of grant
research and applications; employee relations and collective bargaining with employee
unions; and the administration of the Civil Service System.
In addition to information gained from one-on-one interviews with directors, managers
and employees and confidential responses to a Hay-developed Human Resources Services
Questionnaire, the Hay Group used the results of a widely recognized survey to perform
an analysis of the Human Resources Department's structure and services of the City of
Delray Beach. The survey, which was compiled by the Bureau of National Affairs, Inc.
(BNA) of Washington, D.C. and published during the fall of 1994, includes the responses
of628 orgaIÙzations. Of the survey respondents 36 percent are manufacturing businesses,
36 percent are non-manufacturing companIes, and 27 percent are non-business
establishments, such as hospitals, educational institutions and government agencies.
Twenty-five percent of the BNA survey respondents are organizations that employ fewer
than 250 workers, 24 percent have workforces of 250 to 499 employees, 17 percent
employ 500 to 999 workers and 34 percent employ 1,000 or more workers. We
concentrated our analyses and comparison, where possible, on the responses received
from the organizations that employ 500 to 999 workers. Thirty five percent of the
surveyed employers are located in the southern United States.
The below assessment is presented on an activity-by-activity bases and is structured to
show descriptive comparisons between the City's human resources activities and BNA
survey results for those same activities. We have also added responses from Hay's Human
Resources Organizational Assessment where appropriate.
Human Resources Staff Levels
The BNA survey median ratio of human resou!ces staff to total company/organization
head count is 1.0 staff members for every 100 employees. Human resources staff levels
relative to the workforce size have been virtually the same for nearly twenty years. The
City's human resources staff ratio to the number of employees is.7 (5 ~ 728 employees).
This more closely aligns with the Education and Government ratio of .8. In this analysis,
all things being equal, the City's human resources staff is below the average head count as
evidenced by the survey by 2 employees. It is important to note that the proper staff size
for the City is the compliment of individuals with the correct skills, abilities and talent to
meet the operating needs of Del ray Beach within given budget constraints.
!
,
Employers are more likely to add clerical or professional positions than managerial slots to
the Human Resources Department staff Of the establishments that increased the size of
their Human Resources Departments in recent years, about half added secretarial/clerical
or professional/technical employees, while just 28 percent increased management staff
levels.
Median Per Caoita Exoenditure
The BNA survey median per capita expenditure for human resources activities and staff
for 1995 (projected) is $683. The median per capita expenditure for 1996 for the City is
approximately $412 ($300,000 HR Budget -:- 728 City employees). The City's Human
Resource Department spends about $271 less per employee as compared to the survey,
for operations and related services in its managing and administering of human resources
activities. The Education and Government expenditure is $396 (projected).
Human Resources Exoenses As A Percent of Ooeratine Costs
The BNA survey indicates that Human Resources Department budgets represents a
median of .9 percent of projected total operating costs. The City's Human Resources
Deartment budget represents .7 percent ($300,000 -:- $43,000,000) of projected total
operating costs for 1996. In other words, the City's Human Resources Deartment budget
is about .2 percent (.9 percent - .7 percent) less than the BNA survey median. However,
for Education and Government, the median is .5 percent.
Activities Normallv Perlormed bv DR StafTExclusivelv
These major activities are most often those that involve compensation, benefits and
recruiting. Human Resources often shares responsibility for employee communications,
training and a portion of the employment interview process with other departments. The
BNA survey addresses the major activities that are performed by ninety-nine percent of
responding Human Resources Departments. The BNA survey indicates that these
activities are handled exclusively by the Human Resources Deartment as opposed to being
handled jointly by Human Resources and other departments. The right hand column
below is Hay's assessment of Delray Beach's performance of these major human
reesources activities.
Activity Perlormed
Perlormed bv 99% of Sunrev Oreanizations bv Delrav Beach
Employment interviews No
Disciplinary procedures Yes
Personnel recordkeeping Yes
Promotion, transfer & separation procedures Yes
New employee orientation Yes
Wage and salary administration Yes
2
Personnel and Administrative Policies and Procedures
A thorough review of the City's Personnel and Administrative Policies and Procedures
indicates that these documents are well written and appear to be appropriate as source
documents ITom which to obtain necessary guidance as to how programs are administered
and ITom whom approvals for action are required. However, it may be appropriate to
verify and ensure that each department possess up-to-date copies of Personnel and
Administrative Policy and Procedures for reference purposes.
Chanees in DR ResDonsibilities
For the city of Del ray Beach, it appears that the role of the Human Resources Department
is unclear in the minds of managers and employees. It is important to define Human
Resources rather than allow it to mean all things to all people. According to management
guru and writer Peter Drucker, all business/service enterprises depend on, human
resources, capital resources and physical resources. All such resources must be employed
productively for success. In consideration of any resource, it is important to take into
account, supply, conservation, protection ITom exploitation, utilization and development.
The only resource that can have an output greater than the sum of its parts is the human
resource.
When organizations view its employees as resources rather than purchased services it
initiates human resource development. Employees may be considered investments, which
yield varying results depending upon how the investment is treated. Human resources
management represents a change in thinking ITom viewing employees as necessary
expenses of doing business to critical investments in an organization's current performance
and future successes.
The trends of change currently existing in the general work force have necessitated an
expansion of the traditional personnel role as personnel is affected by social, technical and
environmental forces. Delray Beach, in assessing its human resources function, must
enable the Human Resources Department to respond to these pressures. The City may
want to redefine the personnel function from a control-oriented supplier of employees to
an overall approach to human resource planning, development and utilization. Today's
human resources department exists because it adds value to the organization.
Presently, the City's Human Resources Department, based on responses received ITom
department directors and employees, enjoys a high level of confidence for the manner in
which it handles labor relations issues, and the level of service provided by the training and
development function.
There is a perception that the Human Resources Department should have defined
responsibility for the recruiting, screening and placement activities. Most departments in
City service may not be staffed or employees not properly trained to handle complex
3
recruitment and placement issues. Special attention should be given to the initial screening
and ranking of candidates for all positions. These functions may be considered primary
responsibilities of the Human Resources Department, and as such, human resources staff
should be trained and updated on the functions and responsibilities of other City
departments.
Hay Consultants observe a need to strengthen communication efforts among management,
supervisors and employees. This may best be accomplished by holding periodic
communication meetings to provide up-to-date information on matters of importance to
City employees. Topics may range nom the proper methods of interviewing candidates
for vacancies, to the implementation of new laws, policies or programs. These meetings
may be established on a defined schedule, perhaps monthly, to afford employees an
opportunity to learn more about any particular area defined by department heads and/or
other employees.
Future Planning
The field of human resources has a base in the behavioral sciences and is naturally
concerned about the motivation and development of the individual employee and the
performance and productivity of the organization. A major factor differentiating human
resource management nom the traditional personnel function is human resources
management's contribution to planning and operations. Today, social development and
work force scenarios may be considered equally important in planning for the future. To
acknowledge mutual dependence between traditional personnel functions, technology,
organization structure, job design and people, encourages the growth of the human
resource management focus. The City of Delray Beach may want to examine the
following areas as a means of strengthening the accountability and sharpening the focus of
the Human Resources Department for the future:
· Human Resources Planning and Forecasting - Identifying future human resource needs
and designing strategy necessary for meeting these needs.
· Individual Motivation and Organizational Analysis - Identifying and acting on
employees motivational development needs and work redesign. Attention may also be
paid to designing jobs that meet individual or organizational requirements.
· Personnel Development - Planning which provides employees those opportunities
needed to enhance skill levels and pursue personal and professional growth and
development through training, career development, career patterning and alternative
work schedules.
· Personnel Utilization - Maintaining human resource system through those traditional
personnel functions i.e., recruitment, selection, appraisal, compensation, and collective
bargaining.
4
The development and integration of the above functions are essential to the ultimate
success of the City's Human Resources Department. They are highly interrelated; a
change in one area may significantly affect the other areas. In this manner, the goal and
direction of the City's Human Resources Department would be to create a human
resources management system, rather than a set of distinctive activities that operates to
1ùDy support current and future operations.
.
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DRAFT COpy
." City Commission Workshop
1 0/8/96
TABLE OF CONTENTS
EXECUTIVE SUMMARy............................. ............ ............. ............. ... ............. ...... vi
INTRODUCTION
The Study Area......,....... ......... .......... ....,......................................,.....................,............. 1
Background And History Of The North Federal Highway Corridor................................... 1
Purpose Of The Redevelopment Plan...... ..... .................................................................. 3
The Planning Process...........,......... ................................,...... ..........................................5
..
EXISTING CONDITIONS
Data Collection.................. ................... ........................................................................... 7
Existing Land Uses.... .............................. ...... ......................... ........ ................ .................7
Commercial Activities....................................................................................................... 9
Vacant Space ............. ..... .................................................. ........................ ......................9
Property Values............................................................................................................... 9
Future Land Use Map And Zoning................................................................................. 1 0
Future Land Use ....... ................ .......... .......... ............... ........ ............... ........ ........10
Zoning......................., ......................................................................................... 12
Population And Demographics ................................................... .............. ........... .... .... ..14
Infrastructure........... ............ ........... ..... ....................... ................... ......... ........................ 15
Traffic And Transportation....... ....................... ............ ................... ............ ..........15
Water And Sanitary Sewer Service........... ............ ................ .................... ..........17
Storm Water Collection ...... ........ ................................... .......... ............................17
Electrical And Telephone Distribution............................................................................ 20
Neighborhood Task Team Report ...................... ............ ............ .............. ....... ....... ..... ..20
Police Crime Report...... .......... ................................... ..... ....... ...................................... ..21
ì
OPPORTUNITIES AND CONSTRAINTS
Introduction.................................................................................................................. ..23
Commercial Development............................................................................................. .23
Residential Development............................................................................................... 23
Market Demand Analysis............................................................................................... 25
Retail Demand .................................................................................................... 25
Office/Light Industrial Demand. .......... ......................... .......... ...... ...... .............. ....25
Residential Demand........................................................................................... .29
Vacant Properties For Possible Aggregation ................ .......... .................. .................. ...29
Vacant And Dilapidated Structures .... ............ ........ ............ ................ ...... ............. ........ .31
Streetscape And Beautification....... .............. ............ ........ ................. ........ ...:':............ ...31
Streetscaping ...................................................................................................... 31
Entrance Features ... ........... ....... .............................. .......................... .......... .... ...32
Fee/Dixie Highway Corridor ....... ........... ......... .................... ........................................... .32
_....-
Crime Management And Public Safety................. ............. .................. ...... ................. ...32
Traffic Concurrency....................................................................................................... 32
Coastal High Hazard Area & North Federal Highway Redevelopment..........................33
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Business Assistance And Economic Development........................................................ 34
Small Business Administration 504 Program ......................................................34
Small Business Administration 7a Program ........................................................34
CRA Business Assistance Programs .......................... ............ ............ ................34
THE REDEVELOPMENT PLAN
Introduction................................................................................................................... . 36
Future land Use.... ............. ........... ........... ........ ....... ......... ............................ ................ .36
Zoning............................................................................................................................ 37
land Development Regulations..................... ........ ............. ............... ......... ...................40
RH-High Density Residential Zoning District.......................................................40
Depth Of Commercial Development................. ......... .........................................41
Federal Highway Light Industrial Area ........... ....................... ........................ .... ..41
ii -
Elimination Of Dilapidated Structures And Properties ...................................................42
Stabilization Of Existing Residential Neighborhoods .....................................................43
CRA North Federal Capital Improvement Program .......................................................43
Tax Increment Revenue Projections ................ ......... ..........................................43
Street Beautification..... ........ ............,................................................................. .44
Acquisition Of Blighted Properties.......................................................................4 7
City Park....................... ......................................................................................4 7
Bond Financing........... ..... .....~..........................................................................,..4 7
I nfrastructure I mprovement Plan .. .................................................................................4 7
Traffic Circulation...... ...... ...... ............................................................................. .48
Public Transportation..... .....,.... .......................................................................... .49
Water Distribution........ .................................. ,.....................................................50
Sewer Collection.................,............................................................................... 50
Storm Water Collection.......,..............................................................::............... 50
Electrical Distribution And Street Lighting........................................................... 50
Fire Protection..................................................................................................... 50
Police And Safety.......... .................................. ........ ........ ....................................50
Parks And Recreation ............................................................. ............. ............... 51
Site Analysis By Use....................................... ...... ...... ..... ................ .... ...... ........... ........ .53
Supermarket....................................................................................................... 53
Fast Food............................................................................................................ 53
Automobile Dealerships ........... .................. ..... ............ ............................ .......... ..54
Housing Opportunities........ .................. ...... ............ ..... ..................................................54
Existing Neighborhoods...................................................................................... 54
Implementation.............................................................................................................. 55
Processing Of Comprehensive
Plan And FLUM Amendments........... ............ ........... ............. .......... ........ ........... .55
Processing Of Rezonings........................................................,........................... 55
Processing Of LDR Amendments ............. ....... ................................... ................ 55
Land Acquisition And Aggregation .......................... .... ......... .................. ............. 55
iii
LIST OF TABLES
Table # Title Page
1 Existing Land Uses In The North Federal Highway Corridor ...................... 7
2 Existing Non-Residential Uses In The North
Federal Highway Corridor .......................................... ................. .... .... ....... 9
3 Demographics - North·Federal Highway Corridor
And Surrounding Areas .......... .................................................................. 15
4 Traffic Counts For North Federal Highway
1989-1995 ................................................................................................ 16
5 North Federal Highway Corridor
Incident Calls By Type: 1993-1995........................................:=-................21
6 North Federal Highway Corridor - Retail And Office-Industrial
Market Demand Potentials: 1996-2015...................................................26
7 North Federal Highway Corridor
New Development Potentials ...... .............................. ................... ........ ....27
8 North Federal Highway Corridor
Vacant And Underdeveloped Property.......... .......... ............ .......... ..... ......31
9 North Federal Highway Corridor
Tax Increment Income Analysis (15 Years)..............................................45
10 North Federal Highway Corridor
CRA Capital Expenditures........................................................................46
iv -
LIST OF FIGURES
Figure # Title Page
1 North Federal Highway Study Area .......................................................... ...2
2 Existing Generalized Land Use .......... ........ ............. .......... .........................8
3 Existing FLUM.......................................................................................... 11
4 Existing Zoning......................................................................................... 13
5 Existing Water Lines................................................................................. 18
6 Existing Sewer Lines................................................................................ 19
7 Market Study Zones ................................................................ ~............. ..28
8 Existing Vacant Parcels............ ..................................... ..................... ......30
9 Proposed FLUM ...... ........ ....................... ..................................................38
10 Proposed Zoning.... ........ ....................... ........ ....... ............................ ....... .39
11 Alternative Park Sites...............................................................................45
v
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EXECUTIVE SUMMARY
North Federal Highway Redevelopment Plan
City of Delray Beach
Community Redevelopment Agency
The North Federal Highway Redevelopment Plan provides the framework for the future
redevelopment of the North Federal Highway Corridor, located between NE 4th Street
and the north city limits. The plan was produced in cooperation with the Community
Redevelopment Agency and the City of Delray Beach.
The report is organized into four sections:
The Introduction describes the Study Area. It gives a brief background and history of
the North Federal Highway Corridor in terms of what factors led to current.conditions in
the area. It also describes the purpose of the Redevelopment Plan and gives a brief
summary of the planning process that helped shaped the contents of the Plan.
The Existing Conditions section describes the Corridor in terms of the factors that
affect development and quality of life in the area. It contains a brief description of the
existing land uses, zoning, and Future Land Use designations in the area. An analysis
of traffic conditions, as well as the infrastructure and a description of crime problems
are also included.
The Opportunities and Constraints section examines the relationship between the
existing conditions and the Corridor's redevelopment potential. The section outlines
problems in the area that hinder redevelopment as well as strengths that may be
catalysts for redevelopment.
The Redevelopment Plan section outlines the framework for the future redevelopment
of the North Federal Highway Corridor, including the actions that the City will take to
facilitate redevelopment. The overall purpose of the Redevelopment Plan is to
capitalize on the strengths of the area and provide methods to deal with the
weaknesses. This equates to three main proposals for the Corridor:
0 Allow for increased residential density to provide a market base to support
the commercial revitalization effort.
0 Allow a greater diversity of uses for commercial development through the
use of an I ndustrial Overlay District.
0 Improve the image and physical appearance of the area through police
support, code enforcement, neighborhood plans and beautification.
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INTRODUCTION
PAGE 1
THE STUDY AREA
The City of Delray Beach "North Federal Highway Corridor," (shown graphically on
Figure 1, page 2), is defined as the area of the City bordered by the F.E.C. Railroad on
the west; the CRA boundary on the east; NE 4th Street on the south and the city limits
to the north.
BACKGROUND AND HISTORY OF THE NORTH FEDERAL HIGHWAY
CORRIDOR
The North Federal Highway area was historically platted in three distinct phases. The
section between NE 4th Street and George Bush Boulevard was subdivided by several
plats recorded in 1913. The area just north of George Bush Boulevard (Sofia Frey ._-
subdivision) and the Lake Avenues (La Hacienda) were platted in 1926. The Bond Way
area (Kenmont) and areas north of La Hacienda were platted from 1946-1950.
-
Early development in the area consisted of a mix of single family homes and
commercial uses which were highly dependent on the tourist trade. These uses,
including trailer parks, auto repair, filling stations, and small motels continued to thrive
during this period, since Federal Highway was the principal route for travelers to reach
South Florida.
Completion of the Florida Turnpike and 1-95 reduced the importance of Federal
Highway as a route for tourists bound for South Florida. The opening of Walt Disney
World in 1971 also contributed to the decline of the corridor, as many tourists began
stopping in the Orlando area rather than continuing to South Florida. These changes in
the Florida tourist industry combined to marginalize the Federal Highway corridor as a
tourist destination. Inevitably, the loss of a customer base led many businesses to
become obsolete and disappear.
Economic activity and property values continued to decline throughout most of the
1980s. At the same time, many commercial structures and residences in the area were
falling into disrepair due to age and neglect. As businesses left the area, they were
often replaced by marginal uses located in poorly maintained buildings with inadequate
parking and landscaping. While the physical appearance of these uses contributed to
the negative image of the area, several locations created more serious problems for the
stability of the neighborhood. Declining motels, trailer parks, and an adult book store
became havens for criminal activities, such as drug sales and prostitution. The
presence of these activities inhibited investment in the area and deepened the decline.
The City has taken steps in recent years to help stabilize the area. It purchased the
Adult Book Store property and resold it to a farm equipment dealer. The Delray Beach
Police Department began working with neighborhood groups to help reduce problems
with drugs and prostitution in the area. Following the enclave annexations, City water
and sewer services were extended to most properties. In 1995, the last County
"pockets" along the North Federal Highway corridor were annexed into the City.
- n__.___····____._ _...
INTRODUCTION
PAGE 2
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N FIGURE 1
'DO' 0 GRAPHIC SCALE 500'
- NORTH FEDERAL HIGHWAY ~ I I
PLANNING DEPARnAENT STUDY AREA 50' 250'
CI TY OF DELRA Y BEACH. FL CI TY LIMITS ........--
- - DIGITAL BASE MAP SYSTEM -- REDEVELOPMEN T AREA _ _
INTRODUCTION
PAGE 3
Private investment has also increased in the past few years. New development and
redevelopment in the area include: Kokomo Key, a 133 unit townhouse development;
the Irish Cottage, a new restaurant in a formerly vacant structure; and expansions of
the Dee-Carr Patio Furniture outlet and Ellie's Diner. Additionally, many businesses in
the area have installed landscape improvements in response to the City's 1993
landscape compliance ordinance. The new landscaping has helped to improve the
appearance of the area.
Notwithstanding recent improvements, the area still has a long way to go before the
blight is eliminated. The City is preparing this redevelopment plan to build upon those
recent advances and help speed up the revitalization of the North Federal Highway
Corridor.
PURPOSE OF THE REDEVELOPMENT PLAN
In preparing its vision for the future in the 1989 Comprehensive Plan, the City of Delray
Beach realized that the City was rapidly approaching build-out. It was alsõ evident that
future increases in ad-valorem tax revenues would become more and more dependent
upon the value of existing properties and less dependent on new development. This
fact and a growing realization of the importance of neighborhood stability, led the City to
refocus its attention toward redevelopment and revitalization of the older sections of
Delray Beach. Recognizing that several of these older areas were becoming
increasingly blighted and that property values were declining, the City adopted a pro-
active approach to stop the decline. The following Goal statement from the
Comprehensive Plan represents the starting block upon which its implementation
strategy has been built:
A major part of the implementation strategy is for the City to prepare and adopt
"Redevelopment Plans" for declining areas of the City. These areas are depicted on
the Future land Use Map as Redevelopment Areas #1 through #6. This designation
effectively acts as a holding zone on each area, where Future land Uses designations
will not be assigned until a Redevelopment Plan has been completed and adopted.
Although the North Federal Highway Corridor is not identified as one of the six
redevelopment areas, the City's Comprehensive Plan and the CRA's Community
Redevelopment Plan both identify the area as blighted and call for the preparation of a
program to hasten the revitalization of the area. The following language, excerpted
from Future land Use Element Policy C-1.6 in the City's Comprehensive Plan, gives a
description of the program:
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INTRODUCTION
PAGE 4
Properties in the corridor that front on Federal Highway primarily contain small-scale,
strip commercial development. Many parcels in the area contain vacant or dilapidated
structures, substandard parking, and substandard landscaping. The area also contains
residential areas identified as "Stabilization" and "Stabilization and Revitalization" on the
Residential Neighborhood Categorization Map contained in the Housing Element.
Many of the remaining parcels in the area are currently vacant. .
Due to those conditions. the North Federal Highway Corridor is hereby identified as a
blighted area. The CRA will be the lead agency for the preparation of an Improvement
Program for the North Federal Highway Corridor. The City, through its Planning and
Zoning Department will provide support and assistance to the CRA in the preparation of
the North Federal Highway Corridor Improvement Program.
The program will, at a minimum address the following issues:
· Improvement of the appearance of the area;
· Identification of appropriate uses for parcels adjacent to Dixie HighwaŸ and
the FEC railroad tracks;
· Identification of and strategies for the elimination of inappropriate and
marginal uses;
· Provision for increases in permitted residential densities adjacent to the
Intracoastal Waterway;
· Directing smaller business operations to more concentrated areas;
· Providing economic stimulation and investment in the area;
· Creation of jobs;
· Stabilization and preservation of residential neighborhoods through new
development, redevelopment and the elimination of blight.
The plan will be completed in FY 95/96.
This document is the Redevelopment Plan for "The North Federal Highway Corridor."
The Plan will attempt to reflect the essence of the community's redevelopment needs
for the future. These needs will then be addressed by determining what regulations are
appropriate and how they fit into the overall design concept. The elimination of blight
through redevelopment will be made possible by promoting a healthy mix of commercial
and residential development, coexistence of automobile, pedestrian, and bicycle traffic
and the orderly development of vacant parcels.
INTRODUCTION
PAGE 5
THE PLANNING PROCESS
City staff began developing the concepts that led to this plan in 1995, following
annexation of the last county enclaves in the North Federal Highway corridor. Now that
the City finally had jurisdiction over all property along the corridor, it became possible to
implement a coordinated redevelopment program for the area. .Since redevelopment of
the corridor is just beginning to take place, the City still has considerable opportunity to
influence and guide the effort.
City and CRA staff first presented their ideas for redevelopment of the corridor at a
public meeting held on March 25, 1996. Four major concepts were discussed at the
meeting.
(1 ) Mixed-use development. This concept was proposed for the area between
Federal Highway and the Intracoastal Waterway, north of George Bush
Boulevard. The City has had great success fostering redevelopment in mixed-
use zoning districts, especially in the downtown area. Provisions in both the
CBD (Central Business District) and OSSHAD (Old School Square-Historic Arts
District) allow for the flexibility that has encouraged redevelopment and brought
the once depressed downtown area back to life. Staff hoped to apply a similar
approach to a large part of the North Federal Highway Corridor. Multiple family
housing would be integrated into new commercial development, (e.g.
apartments above retail or office uses). This neo-traditional concept would allow
for work, shopping, leisure and housing to occur in the same area, thereby
reducing traffic on adjacent roadways.
(2) Industrial overlay. This concept was proposed for the area between Federal
Highway and Dixie Highway. The combination of light manufacturing and
assembly operations with retail sales to market products is a natural for this area. -
Retail customers would utilize Federal Highway for access while service
operations would occur in the rear with access from Dixie highway. This
flexibility in zoning will allow businesses, which would otherwise be excluded, to
locate within the corridor. Benefits include the use of vacant and underutilized
properties, increased tax base and creation of jobs.
(3) High-end multiple family housing. Due to the surge in proposals for multi-family
rental development in 1995, the City commissioned Reinhold Wolff Associates to
prepare a market report on housing needs in the City. The report, entitled -
"Analysis of Current and Future Housing Needs," indicated a demand for
high-end multiple family housing in the City. That information was also supported
by a privately commissioned market study done for property located along the
Intracoastal Waterway in the North Federal Highway area. These events led to
the idea of using high-end multiple family housing as a foundation for the
revitalization of the North Federal Highway Corridor. Multiple family housing
would provide a renewed consumer base for existing commercial uses and
increase demand for new commercial development in the area. The new
development would also increase the availability of tax-increment funding which
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INTRODUCTION
PAGE 6
the CRA could then use for public improvements and elimination of blighted
properties in the area.
(4) Expanded CBD. CBD zoning would be expanded along N. Federal Highway to
George Bush Boulevard. This zoning allows a greater range of uses and has
reduced parking requirements with an in-lieu fee option. .
The meeting was well attended by residents of the neighborhoods within and around
the study area. The residents expressed concerns regarding the future of their
neighborhoods, given the City's ambitious redevelopment program. They suggested
that mixed-use zoning would allow commercial development to intrude upon their
neighborhoods and degrade their quality of life. Increased traffic congestion, noise, and
crime were also cited as potential problems. Based on the comments from the meeting,
staff scaled back their proposal to a smaller area of high-density residential and
eliminated mixed-use provisions.
On April 10, 1996, the City and CRA held a second public meeting to gather information
for the preparation of the plan. That meeting was also heavily attended. The meeting
indicated significantly different priorities for area residents, residents of surrounding
areas, and owners of commercial properties and businesses in the area. In order that
each of the three groups would have an adequate forum for their concerns, the City and
CRA held special meetings with each of the groups:
0 business owners within the study area (May 8, 1996);
0 residents of the study area (May 15, 1996); and,
0 residents of areas adjacent to the study area (May 16, 1996).
The comments received at all of those meetings have helped to shape the contents of
this Redevelopment Plan.
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EXISTING CONDITIONS
PAGE 7
DATA COLLECTION
The CRA has compiled a database of all properties within the Study Area. The
information in the database includes the property control number, property area,
property ownership, building area in square feet, occupancy information, existing land
use, use of the property by Standard Industrial Classification (S.I.C.) code, existing
parking and assessed value. The database is included as an appendix to this report,
as a resource for potential developers, home builders, or business operators. The --
following land use and other property information is based on this database.
EXISTING LAND USES
The approximately 143 acres (not including road rights-of-way) of the Study Area are
focused on commercial properties fronting along Federal Highway, but also contain
pockets of deteriorating residential structures, and several large vacant parcels. The
residential portion of the Study Area consists of several subdivisions on the. east side of
Federal Highway, containing a mix of single family and multiple family structures.
Several industrial uses and a number of vacant parcels and structures are distributed
throughout the area. The "Generalized Existing Land Use Map," (Figure 2, page 8)
shows the distribution of the various land uses in the area and Table 1, below gives a
breakdown of these uses by type.
Table 1
Existing land Uses in the North Federal Highway Corridor
land Use # of Parcels Acres land Area % land Bldg. Area % Bldg.
(Sq. Ft.) Area (Sq. Ft.) Area
Auto Repair/Gas 18 4.51 196,620 3.16% 36,373 6.65%
Industrial 5 3.33 144,960 2.33% 42,428 7.75%
Mobile Home Park 1 1.80 78,371 1.26% 1 ,426 0.26%
Motels 4 3.58 156,108 2.51% 13,533 2.47%
Multi Family 20 15.80 688,447 11.08% 41,016 7.50%
Mixed Commercial 10 5.17 225,418 3.63% 51,909 9.49%
New Car Sales 6 8.09 352,555 5.67% 55,116 10.07%
Office 16 4.76 207,373 3.34% 35,208 6.43%
Parking/Auto storage 2 0.92 40,043 0.64% 0 0%
Restaurant 12 6.54 284,994 4.59% 23,135 4.23%
Retail 35 24.84 1 ,082,193 17.41% 130,146 23.78%
Services 4 0.91 39,527 0.64% 9,841 1.80%
Single Family 93 23.06 1 ,004,422 16.16% 98,386 17.98%
Storage 2 1.25 54,550 0.88% 4,809 0.88%
Used Car Sales 3 2.41 104,810 1.69% 3,883 0.71%
Vacant Lots 37 35.69 1 ,554,739 25.02% 0 0%
TOTALS 268 142.66 6,215,130 100% 547,209 100%
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EXISTING CONDITIONS
PAGE 8
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. GRAPHIC SCALE
100 0 5_
- NORTH FEDERAL HIGHWAY ~ I I
PLANNING DEPARThAENT GENERALIZED EXISTING LAND USE 50' 250'
CITY OF DELRAY BEACH, FL CITY LIMITS ...........
__ DIGITAL BASE MAP SYSTEM __ I<£5-0[5<OE""',,- COW-aJONERC"'- '/~-""""TR"'-(""""'AC""""C) REDEVELOPMENT AREA - -
EXISTING CONDITIONS
PAGE 9
COMMERCIAL ACTIVITIES
The commercial portion of the study area contains a mix of retail, office, service,
industrial, and residential uses. The area south of George Bush Boulevard contains a
concentration of automobile related uses, while general retail and service uses
predominate north of George Bush Boulevard. A large proportion of the retail uses
within the area have some or all of their inventory in second hand merchandise. A
number of restaurants are scattered throughout the area. Table 2, below, gives a --
breakdown of these uses by type.
Table 2
Existing Non-Residential Uses in the
North Federal Highway Corridor
Land Use Number %
General Retail 23 18.11%
Retail (2nd Hand) 15 11.81 % -
Auto Sales (New) 3 2.36%
Auto Sales (Used) 3 2.36%
Gas Station/Auto Repair 14 11.02%
Restaurant 10 7.87%
Service 15 11.81 %
Storage 1 0.79%
Office 15 11.81 %
Industrial 2 1.57%
Motel 3 2.36%
Vacant 23 18.11%
Total 127 100%
VACANT SPACE
There is a total of 406,381 square feet of non-residential building area within the study
area. Of this total, 9.73% or 39,556 square feet is contained within the 23 vacant
buildings and spaces in the study area.
PROPERTY VALUES
The total assessed value of the 268 properties within the study area was $36,866,833
in 1995, down by 1.3% from $37,356,455 in 1994. Given a total acreage (excluding
rights-of-way) of 142.67 acres, the average assessed value of all property in the area,
including structures, is $5.93 per square foot of land. There are 35.69 acres of vacant
land in the area with a total value of $5,402,489 or $3.47 per square foot. The 66.33
acres of non-residential property in the area have a total assessed value (land and --
structures) of $23,058,828 or $8.98 per square foot of land. The 40.66 acres of
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EXISTING CONDITIONS
PAGE 10
residential property in the area have a total assessed value (land and structures) of
$8,405,516 or $4.75 per square foot of land.
FUTURE LAND USE MAP AND ZONING
The Future Land Use Map (FLUM) and Zoning specify the land uses and types of
structures that can be permitted on a parcel. These are the primary tools by which the
City regulates development within its boundaries.
FUTURE LAND USE
Several Future Land Use Map designations apply within the study area. Low Density
Residential, Medium Density Residential, General Commercial, Transitional, and
Conservation FLUM designations are each applied to at least one property in the area.
The "Future Land Use Map," currently in effect for the area, is shown on Figure 3 (page
11). The following paragraphs describe the FLUM Designations shown on this map.
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Low Density Residential
A part of one existing single family residential neighborhood (Allen Avenue) in the Study
area is designated as Low Density Residential on the City's Future Land Use Map.
This designation permits residential units at densities of less than 5 d.u.lacre. All
currently existing residential zoning districts, except RM (Medium Density Residential)
are permissible in the Low Density Residential FLUM designation. Residential units in
the Low Density residential designation should be primarily single family, but duplex,
multiple family, or townhouse units may be constructed in the PRO (Planned
Residential Development) and RL (Low Density Residential) zoning districts.
Medium Density Residential
The remaining residential properties in the study area are designated as Medium
Density Residential on the City's Future Land Use Map. This designation permits
residential units at densities of 5-12 d.u.lacre. All currently existing residential zoning
districts are permissible in the Medium Density Residential FLUM designation. The
residential units may be single family, duplex, multiple family, or townhouse.
General Commercial
The General Commercial designation is applied to parcels that have frontage on
Federal Highway, Dixie Highway, and/or George Bush Boulevard. All commercial
zoning districts (except CBD) and uses may be permitted in the General Commercial
FLUM designation.
Transitional
The Transitional FLUM designation is often used for an area of intermediate intensity
between commercial uses and residential uses. Office uses, medium density
EXISTING CONDITIONS
PAGE 11
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_ NORTH FEDERAL HIGHWAY 1~ I j'
EXISTING F.L.U.M. 50' 250'
PLANNING OEP AR TMEN T
crTY OF OELRAY BEACH, FL OS-OPEN SPACE CITY LIMITS .....,.,...
os-c -OP(H SPACE. \..DR-lOW C[HSI1'( R[SI()[N~\H.. CC-COIoUro\ERCIH.. CORE Cf-COWWUNltv fl<ClUtY REDEVELOPMENT AREA _ __
_ _ DIGITAL BASE MAP SYSTEM _ _ (CONSERVAnoN AREA) ~O¡;¡-"'[DlU'" DENSITY R[SIO[NIìAl CC-CEH£RAI. COI,ftr,t(RCIAl TRN-TRANS1OO"1AL
EXISTING CONDITIONS
PAGE 12
residential uses, and very limited commercial uses are permitted in Transitional. The
Transitional designation is applied to a few small parcels to the rear of existing
commercial uses in the study area.
Conservation
The Donnelley parcel located on Palm Trail at Bond Way and adjacent to the
Intracoastal Waterway is designated as Conservation on the FLUM. The designation
ensures that the parcel will be retained in its natural state. The only appropriate
zonings in areas designated as Conservation are CD (Conservation) and OS (Open
Space).
ZONING
There are six zoning designations currently applied within the North Federal Highway
Corridor:
..
0 RM (Medium Density Residential);
0 RL (Low Density Residential);
0 R-1-A (Single Family Residential);
0 GC (General Commercial);
0 AC (Automotive Commercial);
0 SAD (Special Activities District)
The zoning designation assigned to a parcel is an important factor in its development
potential. Zoning establishes the uses permitted as well as setbacks, height limits, and
other development standards for structures on the parcel. District locations are shown
on the "Existing Zoning Map," (Figure 4, page 13). The following paragraphs briefly
describe the zoning districts that are applied within the study area.
RM (Multiple Family Residential - Medium Density)
The RM district permits a variety of housing types at densities of 6 to 12 units per acre.
The district furthers the goals of Goal Area "C" of the Housing Element of the
Comprehensive Plan. Those include: provision of a variety of housing types, provision
of affordable housing for moderate and middle income families, particularly first time
home buyers, and meeting the housing needs of low and moderate income families.
RL (Multiple Family Residential - Low Density)
The RL district permits a variety of housing types at densities of up to 6 units per acre.
Like RM, the district furthers the goals of Goal Area "C" of the Housing Element of the
Comprehensive Plan.
EXISTING CONDITIONS
PAGE 13
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FIGURE 4 GRAPHIC SCALE 500'
_~. NORTEHXI~fl~~R~~~~~WAY '~.J 2~' I
OS-QPEH SP..a:
PLANNING DEPARTMENT ~:~f'=~g~~~clAl ~=TY:=7 OrSmICT ~':~~~s::::~~ CITY LIMITS .'.'.1.....
CI TY OF DELRA Y BEACH, FL CO-COHS£RvATlQN O!STlUCT OC-C£..N(N.L COWw:ACW. ("'(1)10loI DENSITY) REOEVELOPMEN T AREA _ __
NC -"UCHBOI{UOOO C()IoIIIofERCIo\t POO-PROr(SSIOfoW.. CJnlC[ OISfMCT Rl-lli'tJlOPl.£ ICIWIlY R(S'O£fI~
DIGITAL BASE MAP SYSTEM "'1e-WlkED INDUSnftAL.. CQlr,l,iERCw.. " I-Þ(I.,M}-SIHCL..( r~Y R(SIIX.HfW.. (lOW 00fSIN1- _
EXISTING CONDITIONS
PAGE 14
R-1-A (Single Family Residential)
The R-1 zoning districts were created to provide areas of single family detached
residences and to protect those areas from the intrusion of inappropriate uses. The
R-1-A district permits single family residential units with a minimum lot area of 7,500
square feet. Additionally, R-1-A accommodates some non-residential uses (churches,
day care facilities) as conditional uses. The R-1-A designation is applied to the
residential area on Allen Avenue.
GC (General Commercial)
The GC district is intended for small parcels of land that are suited to small scale retail,
service, and office uses. Most of the land adjacent to North Federal Highway in the
study area is designated GC.
AC (Automotive Commercial)
The AC district is intended to provide areas for the sale, lease or rental of --automobiles.
Full service dealerships, with attendant accessory service uses are also permitted.
Free-standing full service and specialized vehicle repair shops are permitted as
conditional uses within the district. This zoning district is applied to several areas of the
corridor.
SAD (Special Activities District)
The SAD district is established in order to provide a zone district which is appropriate
for projects which are not otherwise classified or categorized in other zone districts; or,
which for some other good reason, can not be properly accommodated in the other
zone districts. The SAD district has been applied to the former Miller Dodge site on
Federal Highway. This property was rezoned from AC to SAD on a temporary basis to
allow general commercial uses on the site while retaining the ability to reestablish
automotive related uses in the future.
CD (Conservation)
The CD zoning district is designed to ensure the preservation of environmentally
sensitive parcels. The district allows only structures that will make areas usable as
nature parks, such as boardwalks. The Donnelley tract is the only parcel in or adjacent
to the study area designated as CD on the zoning map.
POPULATION AND DEMOGRAPHICS
The most recent demographic data available for the study area are from the 1990
United States Census of Population. In 1990, the area had approximately 125 housing
units with a total population of 240 persons. There were 52 children (21.7%) and 188
(78.3%) adults. The racial composition of the area was 78.3% White, 20.8% Black and
0.9% Asian/Pacific Islander.
EXISTING CONDITIONS
PAGE 15
The CRA also obtained census data for the areas within a one, three and five mile
radius of the intersection of George Bush Boulevard and Federal Highway. The area
within the one mile radius includes the entire study area as well as the NE 2nd/Seacrest
Avenue and Bond Way/Sofia Frey neighborhoods, portions of the Lake Ida
neighborhood, portions of the northwest neighborhood, ançj property east of the
Intracoastal Waterway. The three mile radius includes most of the City of Delray Beach
and parts of the City of Boynton Beach and the Town of Gulf Stream. The five mile
radius includes all of the City and the Town of Gulf Stream, most of the City of Boynton
Beach and the Town of Ocean Ridge, and parts of unincorporated Delray Beach,
unincorporated Boca Raton, and the City of Boca Raton. Table 3, below gives a
comparison of demographic information for each of these three areas and the study
area.
Table 3
Demographics
North Federal Highway Corridor and Surrounding Areas
-
Study Area One Mile Radius Three Mile Five Mile Radius
Radius
Race
White 78.3% 77.7% 72.7% 81.5%
Black 20.8% 20.3% 25.3% 16.7%
Asian/Pacific Isl. 0.9% 0.9% 0.8% 0.9%
Other 0% 1.1% 1.2% 1.0%
Age
Under 18 21.7% 16% 14% 12% --
Over 18 78.3% 84% 86% 88%
Source: 1990 U.S. Census of Population & National Decisions Systems, April 2, 1996
INFRASTRUCTURE
TRAFFIC AND TRANSPORTATION
~...-
Traffic Counts
The Palm Beach County Engineering Department maintains traffic counts on all State .-.-,
and County Roads as well as some City streets. Counts are available for Federal
Highway, George Bush Boulevard, and Gulfstream Boulevard. The most heavily
traveled segment in the area is Federal Highway, with approximately 20,950 average
daily trips (ADT) according to a 1995 count. George Bush Boulevard, carried 8,900
ADT at the Intracoastal Waterway, based on 1993-1994 traffic counts.
-
EXISTING CONDITIONS
PAGE 16
The City's traffic engineering consultant reviewed historic traffic counts tor Federal
Highway to determine trends. He obtained counts tor the last seven years. The historic
traffic counts indicate a sight decrease in traffic over that time. The figures also indicate
that Federal Highway has continued to operate well under its design capacity ot 29,400
ADT in this area. The historic traffic counts are listed in Table 4.
Table 4
Traffic Counts for North Federal Highway
1989-1995
Year Trips
1995 20,985
1994 20,848
1993 21,630
1992 22,998
1991 21,575
1990 23,356
1989 23,321 ..
Source: Palm Beach County Engineering Department, Traffic Division
Federal Highway and FDOT
Since Federal Highway is a State highway through the study area, maintenance and
improvements in the right-ot-way (RIOIW) will be carried out by the Florida Department
ot Transportation (FDOT). FOOT is scheduled to improve the segment ot Federal
Highway that passes through the study area in Fiscal Year 1996/1997. The
improvements will consist ot the addition ot a bicycle lane and elimination ot some
median cuts. Most on-street parking will be retained. Although the ultimate right-ot-way
is 120 teet, the improvements will be completed in the existing 100 toot right-ot-way.
Condition of Streets
Generally, streets in the study area are in good condition. Streets in the La Hacienda
subdivision were resurfaced in 1993. Federal Highway will be resurfaced with the
proposed FDOT improvements. There are; however, a number ot problems with the
existing street system. Eastview Avenue, NE 8th Avenue, and Palm Trail dead-end
without a proper cul-de-sac or turn-around area. Royal Palm Boulevard is currently
unimproved. NE 9th Avenue, just to the south ot the study area, has been identified by
residents as a roadway in need of resurfacing. Proposed improvements to the existing
street system will be discussed in the Redevelopment Plan section ot this report.
Alleyways
Few alleys exist in the North Federal Highway area and most ot the existing alley rights-
ot-way are unimproved. Paving of alleys will probably not be required to serve new
development in the area. The City of Delray Beach does not have plans at this time for
improving those alleyways. In the absence of City alleyway construction, abandonment
EXISTING CONDITIONS
PAGE 17
of unimproved alleys may be permitted or even encouraged in order to help aggregate
property for development.
Public Transportation
Mass transit in the North Federal Highway area is provided by. Palm Tran. The City of
Delray Beach is served by five Palm Tran Bus routes. Although only one of these
routes (Route 1) has stops on North Federal Highway, transfer locations along the route
give passengers access to a number of destinations within Palm Beach County. Bus
Stops are conveniently spaced along the corridor with 8 stops northbound and 5
southbound. Buses run from 6:00' AM to 9:00 PM on weekdays with a 30 minute
headway, 7:30 AM to 7:30 PM on Saturday and 9:30 AM to 5:00 PM on Sunday, both
with a 60 minute headway.
WATER AND SANITARY SEWER SERVICE
Water service is provided by the City throughout the study area. The primary service is
via an 8" main located in Federal Highway. A network of 6" and 8" matns distribute
water to all properties in the study area. The existing mains are adequate to provide
service for existing as well as anticipated development. Figure 5 (page 18) shows the
existing water service network in the area.
Sewer service is provided to the area by the City, in conjunction with the South Central
Wastewater Treatment Facility Board. A network of sanitary sewer mains serves most
parcels in the area. Extensions of the existing mains may be required for the
development of some parcels. Figure 6 (page 19) shows the existing sanitary sewer
service network in the area.
According to the Comprehensive Plan, the City's water treatment plant and the South -~.-
Central Wastewater Treatment Facility will both be operating under capacity at
build-out. The provisions of this Redevelopment Plan will not significantly increase the
overall demand for water and sewer service in the City. Therefore, adequate sanitary
sewer and water treatment capacity will be available to serve the study area at its
maximum development potential.
STORM WATER COLLECTION
The City adopted a Stormwater Master Plan in 1993 (revised in 1994). The plan -
identifies the storm drainage level of service (LOS) in all areas of the City and identifies
locations requiring improvements. The following description of storm drainage in the
area is based on the adopted Stormwater Master Plan. Storm drainage for Federal
Highway is provided by a series of catch basins leading to a 54" storm sewer that
outfalls into a drainage ditch connected to the Intracoastal Waterway. No drainage
problems or required drainage improvements are identified for Federal Highway.
The drainage standard applied within the study area is LOS standard "C". The roadway _..
design standard for LOS "c" is a 3-year, 24-hour storm event. The potential impacts
from such an event are possible minor ponding with roadways remaining accessible.
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FIGURE 5 GRAPHIC SCALE 0
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PLANNING DEPAR'lNENT EXISTING WATER LINES 15' 5 O' ~ g
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FIGURE 6 GRAPHIC SCALE , 0
N NORTH FEDERAL HIGHWAY 250' 0 10r "'0 ~
~- ~ ~ ~:j
PlANN;:;C OEPARTI.lENT EXISTING SEWER LINES 1 5' 5 ' ~ ~
CITY OF OElRAY BEACH, Fl CITY LIMITS .1.,.1...1. <0 (j)
-- DIGITAL BASE MAP SYSTE1tf -- LEGEND: MAN HOLE 0 UFT STATION " SEWER I.IAIN REDEVELOPMENT AREA _ _
EXISTING CONDITIONS
PAGE 20
Although the area east of Federal Highway does not have positive drainage, overland
flow and infiltration appear to be adequate to curtail major problems. The study area
was not identified as a problem area in the Stormwater Master Plan and no
improvements were recommended within the plan.
ELECTRICAL AND TELEPHONE DISTRIBUTION
Existing Service:
Telephone and electrical service are available within the study area from existing lines
located in road and alley rights-of-way. Although no deficiencies or required upgrades
are noted at this time, the visual appearance of overhead utility lines is degrading to the
appearance of the area.
Street Lighting:
Lack of adequate street lighting has been identified as a problem by a number of
residents and business owners. The City's Environmental Services Department is
working with Florida Power and Light to improve lighting along Federal Highway. Plans
and scheduling for the Federal Highway lighting improvements are discussed in the
Redevelopment Plan section. Request for improved lighting in other areas can be
handled on a case-by-case basis as problems are reported to the Environmental
Services Department.
FIRE PROTECTION
Fire protection is provided from Station #2, located on Andrews Avenue. Back-up
service is provided from Station #1 on Atlantic Avenue and Station #4 on Lake Ida
Road. The existing stations provide adequate service to existing development. The
City will monitor fire protection for the area as new development is proposed.
Hydrant Distribution:
Fire hydrants are distributed throughout the study area. LOR requirements for hydrant
spacing are a maximum of 500 feet in residential areas, 400 feet in multi-family
residential areas, and 300 feet in commercial areas. Those spacing requirements are
met for most of the area. Hydrants may be required for development of currently vacant
portions of the study area.
NEIGHBORHOOD TASK TEAM REPORT
The Neighborhood Task Team was established by the City Commission with the formal
adoption of Resolution No. 68-90, on July 10, 1990. The Task Team's final report,
which was accepted by the City Commission on July 28, 1992, presented a summary of
neighborhood assessments and a series of strategies and recommendations designed
to mitigate current conditions and trends in the residential neighborhoods of the city.
EXISTING CONDITIONS
PAGE 21
Within the Federal Highway Corridor, the Task Team categorized the Residential
neighborhood east of Federal Highway as "Stabilization/Revitalization." The City's
Comprehensive Plan calls for areas with this designation to have a greater priority in
terms of targeting of code enforcement and law enforcement operations; and to have a
greater priority in the scheduling of capital improvements (i':1frastructure) which will
assist in arresting visual signs of deterioration.
POLICE CRIME REPORT
The Delray Beach Police Department maintains crime figures for the City tabulated by a
number of patrol grids. The study area is located within five grids (10, 50, 80, 250, and
260). The crime statistics shown in Table 5 are compiled from the statistics for those
five grids which represent approximately 2.5% of the total city area. While they do
contain properties outside the study area, these grids are primarily made up of
properties within the area.
-
The statistics include five categories: Part-1 Property Crimes, Part-1 Persons Crimes,
Narcotics Arrests, Nuisance Calls, and Suspicious Events calls. Part-One Property
Crimes includes arrests for auto theft, burglary, and larceny. Part-One Persons crime
includes arrests for homicides, assault and battery, sex crimes, and robbery. Narcotics
arrests include all arrests for drug offenses. Nuisance calls are reports of activities
such as unlawful assembly, noise, disorderly conduct and intoxication, and unlawful
discharge of a firearm. Suspicious events include trespassing, loitering, and prostitution
reports.
Table 5
North Federal Highway Corridor -,-
Incident Calls by Type: 1993-1995
1993 1994 1995
Crime Type Number %of Number 0/0 of Number %of
Citywide Citywide Citywide
Part-1 Property Crimes 333 5.5% 276 4.5% 274 4.6%
Part-1 Persons Crimes 25 3.7% 19 4.0% 21 3.4%
Narcotics Arrests 14 2.5% 21 4.8% 14 4.9%
Nuisance Calls 36 5.1% 29 4.9% 63 9.0%
Suspicious Events Calls 220 5.5% 195 4.5% 274 5.7%
Totals 628 5.2% 540 4.5% 646 5.2% ----
Source: City of Delray Beach Police Department, 1996
Crime in the area decreased significantly between 1993 and 1994. Calls for part-one
crimes and both nuisance and suspicious event calls decreased in that time. Only j
narcotics arrests increased, from 14 to 21. From 1994 to 1995, part-one crimes and
police calls for nuisances returned to approximately their 1993 levels. Suspicious
events calls also increased in 1995, up from 220 in 1993 and 195 in 1994. J
I
EXISTING CONDITIONS
PAGE 22
Significantly, while containing only 2.5% of the city's total area, these five grids account
for twice that percentage of police incident calls. Although the majority of the reported
crimes are non-violent in nature, these types of activities contribute to the area's
negative image and effect the quality of life for its residents. The numbers indicate that
the area continues to have a problem with these "quality-of-life" crimes.
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OPPORTUNITIES & CONSTRAINTS
PAGE 23
INTRODUCTION
The previous section "Existing Conditions" contained a general description of the North
Federal Highway Corridor in terms of geography, demographics, infrastructure, land
use, regulations, etc. This section, "Opportunities & Constraints," builds on that
information by relating how current conditions and regulation$ affect the potential for
redevelopment. The section outlines problems in the area that hinder redevelopment
as well as strengths that may be catalysts for redevelopment. ...""
COMMERCIAL DEVELOPMENT
The commercial properties on North Federal Highway are less than 300' in depth.
Parcels of this size are most conducive to strip type commercial development, which
the City is working to reduce and discourage. While commercial redevelopment is still
possible within this depth, development and redevelopment options are limited.
Increases to the depth of commercial zoning may be required to allow for future
planned commercial development of the area. ..
While the General Commercial zoning district generally accommodates the types and ..,"< ~
intensity of uses that are appropriate for North Federal Highway, the specific conditions
of this area require special development standards that reflect the area's needs and
conditions. The provisions of a North Federal Highway Overlay District to be added to
the GC district of the LDRs are included in The Redevelopment Plan section of this
report.
RESIDENTIAL DEVELOPMENT -
The existing development pattern of low density residential housing and the close
proximity of commercial properties along Federal Highway creates the potential for -
conflicts between uses in the study area. Precautions must be taken in the
redevelopment of commercial properties along Federal Highway to minimize the
conflicts and avoid unnecessary intrusion into the residential neighborhoods. Although
the stability of owner-occupied single family housing is generally deemed to be an asset
to the area, the intermixing of multiple family structures on small parcels having limited
parking, landscaping and other facilities, along with absentee ownership of those
properties have combined to create substandard conditions.
The City wants to encourage additional residential development in the study area.
There are few vacant properties within the existing residential neighborhoods and
additional development is limited to infill single and low density multiple family housing.
Although residential development within these neighborhoods should be allowed to ",.,...
continue in the existing pattern, development code requirements for future multiple
family structures must be strictly enforced.
-
OPPORTUNITIES & CONSTRAINTS
PAGE 24
One portion of the study area with a high potential for residential development is the
vacant parcel adjacent to the Intracoastal Waterway (Yake property). In order to
encourage development of that property, the City should permit residential development
at higher densities than currently permitted in the Medium Density Residential
Designation. This would require the establishment of a High Density Residential FLUM
designation. That change will be discussed in the Redevelopment Plan portion of this
report.
The purpose of the proposed increase in maximum density is to promote
redevelopment, and economic development in the area. Increased density will provide
the stimulus needed for redevelopment in accordance with the goals of the City's
Comprehensive Plan, Treasure Coast Regional Planning Council's Strategic Policy
Plan, and the Governor's Commission for a Sustainable South Florida.
Redevelopment planning and a higher density residential category also fit into the
system-wide plans and the goals of the City. The factors of the equation are services,
transportation, schools, natural resources, economic development and tax base. The
sum of the factors is quality of life. ..
Higher residential density can:
0 Reduce urban sprawl.
0 Use existing resources efficiently.
0 Help make mass transit feasible.
0 Put a viable consumer base close to businesses.
0 Improve the efficiency of service delivery, reducing the per capita cost.
0 Provide housing in proximity to employment and essential services,
controlling the cost of transportation.
0 Increase opportunities for neighborhood schools, decreasing the length and
frequency of busing, and decreasing the cost of providing schools and
student transportation.
0 Assist in environmental preservation by reducing the demand for the
development of suburban land.
0 Accommodate alternative forms of transportation such as walking and
bicycling.
High-end rental apartments have additional advantages. Higher rental rates indicate
that renters will probably have a greater amount of disposable income. It is believed
that rental apartments will attract a greater proportion of year-round residents than a
OPPORTUNITIES & CONSTRAINTS
PAGE 25
similar condominium development. Both of these factors are important to the
commercial revitalization of the area.
MARKET DEMAND ANAL YSIS
The Community Redevelopment Agency and the City of Delray Beach Planning
Department envision the redevelopment of the North Federal Highway area to include a ~..-
mix of uses, particularly retail, office, office-light industrial, and residential.
Consequently, the Agency commissioned a market demand analysis for retail and office
uses from a market research firm, Marketek, Inc. of Atlanta, GA, for the purpose of
quantifying the long-term demand. As a follow-up of earlier studies, the City of Delray
Beach contracted with Reinhold P. Wolff, Economic Research, Inc. of Fort Lauderdale,
FL to study the demand for rental apartments in the North Federal Highway area.
RETAIL DEMAND
Retail goods and services in the North Federal Highway corridor are pro~ided for the
local neighborhood market as well as a larger community market. A few businesses
such as Dee Carr Patio, the Swap Shop, and large furniture stores may appeal to ~.-.-
consumers on a regional basis. The market demand study suggests that the Study
Area could absorb approximately 150,000 square feet of additional retail space over the
next 15 years. This amounts to an average of approximately 10,000 square feet per
year. In the first five years, the absorption would be relatively low, but as residential
development takes place in the area and the local demand for goods and services
increases, the absorption rate will begin to increase. Additionally, improvement of the
area's physical appearance, reduction of crime, and the establishment of a stronger
retail theme, such as factory outlets will also significantly increase the retail absorption
rate over the long term.
Table 6 describes the projected 15-year absorption rate for retail space. Table 7
describes the potential maximum supply that could be expected on the corridor. This
amounts to a total potential of 245,000 additional square feet of retail space. See Figure
7, page 28 for location of market study zones shown in the table.
OFFICE/LIGHT INDUSTRIAL DEMAND
The Marketek study suggests that the demand for office and industrial space, within the
corridor, amounts to approximately 250,000 square feet over a 15-year period. This
demand includes only new space formation and does not include existing offices or "'"-
plants shifting locations. It does, however, include expansion space for existing
businesses. Marketek suggests that office and light industrial will outpace retail in the
short term, five years, as well as the long term, 15 years. There are several factors to
suggest a greater strength in office and light industrial for the area.
First, there is relatively little land available in the South Palm Beach County area where ~..-
small, light industrial users can find attractive locations, particularly with adequate
frontage on major roadways. Federal Highway is an excellent location for businesses
-
OPPORTUNITIES & CONSTRAINTS
PAGE 26
that wish to sell their products from their place of manufacturing/assembly. The City
proposes to allow light industrial uses in the area with the stipulation that the industrial
operations be enclosed and that the manufactured product be featured and sold on a
retail basis on the premises. This concept is very important in order to attract smaller
businesses that cannot afford to locate in the more expensive planned office/industrial
developments in the suburbs whose minimum size lots may be five acres or more.
Secondly, North Federal Highway is a major thoroughfare and sites fronting on the road
offer businesses the opportunity to market their goods and services on a community
and regional basis. Consumers from Boca Raton to West Palm Beach can easily
access Federal Highway to seek a product.
Thirdly, small office users in South Palm Beach County are scrambling to find relatively
inexpensive office space, and the Federal Highway corridor offers the user a known
and easily accessible address as well as moderately priced space.
With respect to the relationship of physical appearance and safety, as these issues
change for the better, absorption rates for office and light industrial space'WiII increase.
Table 6 describes the projected 15-year absorption rate for Office-Industrial space.
Table 7 describes the potential maximum supply that could be expected on the corridor.
This amounts to a total potential of 336,000 additional square feet of office and
industrial space. See Figure 7, page 28 for location of market study zones shown in the
table.
In order to meet the potential office demand, the private and public sectors will have to
assemble a few sites large enough to accommodate larger office/light industrial
business development.
Table 6
North Federal Highway Corridor
Retail and Office-Industrial Market Demand Potentials
1996-2015
1996-2002 2,396,402 40,000 2% 15,040,277 60,000 0.4%
2003-2009 1,200,164 60,000 5% 16,215,929 120,000 0.7%
2010-2015 1,028,712 50,000 5% 14,655,144 70,000 0.4%
TOTAL 4,625,278 150,000 3% 45 911,350 250,000 0.5%
Source: Marketek, Inc., 1996
1 In Delray Beach Market Area
2 In Palm Beach County
OPPORTUNITIES & CONSTRAINTS
PAGE 27
Table 7
North Federal Highway Corridor
New Development Potentials
~~t
lid' .... .. .... . '.. ....n Uv . ww ... . mm .. ...mm." .. .......... ..... nn .'
,...-..
Retail
Developed 490,141 97,144 20% 127,237 26% 30,093
Undeveloped 0
Total 30,093
Office-Industrial
Developed 164,760 5,761 3% 57,666 35% 51,905
Undeveloped 317,471 111,115 35% 111.115
Total 163,020
Retail ..
Developed 311,962 16,869 5% 81,110 26% 64,241
Undeveloped 191,465 49,781 26% 49.781
Total 114,022
Office-Industrial
Developed 144,661 13,178 9% 50,631 35% 37,453
Undeveloped 191,465 67,013 35% 67.013
Total 104,466
Retail
Developed 425,508 59,228 14% 110,632 26% 51 ,404
Undeveloped 153,044 39,791 35% 39.791
Total 91,195
Office-I ndustrial
Developed 103,230 29,136 28% 36,131 35% 6,995
Undeveloped 51,014 17,855 35% 17.855
Total 24,850
~._~
Retail
Developed 193,037 46,703 24% 50,190 26% 3,487
Undeveloped 22,875 5,948 26% 5.948
Total 9,435
Office-Industrial
Developed 289,771 57,135 20% 101,420 35% 44,285 __
Undeveloped 0
Total 44,285
Grand Total Potential New Retail
Grand Total Potential New Office-Industrial
Source: Marketek, Inc., 1996
-
OPPORTUNITIES & CONSTRAINTS
PAGE 28
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N FIGURE 7 GRAPHIC SCALE
135' 0 9S0'
- NORTH FEDERAL HIGHWAY ~ I I
PLANNING DEPARTMENT MARKET STUDY ZONES so' .75'
CITY OF DELRAY BEACH. FL CITY LIMITS .'.'.'...'.
-- DIGITAL BASE MAP SYSTEM-- REDEVELOPMENT AREA _ _
OPPORTUNITIES & CONSTRAINTS
PAGE 29
RESIDENTIAL DEMAND
There is a strong market for rental housing in Delray Beach and in Palm Beach County
as a whole. Lifestyle housing choices are rapidly changing. More professional couples,
both young and middle-aged, are seeking luxury rental housing instead of home
ownership. As suburban sites (west of Interstate 95) become. scarce, developers will
start looking to the urban coastal sites for apartments.
Based on employment data and the demand for rental apartments in Palm Beach
County as a whole, Delray Beach should be able to capture between 20 and 25% of the
demand for additional rental housing in the county, if an adequate supply of units are
offered and developments offer a sufficiently wide array of units in terms of market
appeal. This means that the Delray Beach Market area has a demand potential of 870
to 1085 rental apartment units annually. Vacancy rates in Palm Beach County are in the
4.4% range and in Delray Beach a moderately low 4.0%. As of June, 1996, inventory of
new apartments in Delray Beach was only 215 units. This represents only a 2.4 to 3.0
month supply.
-
The Market Study analyzed the North Federal Highway Study Area and determined
feasibility for rental apartments on sites which front the Intracoastal Waterway as well
as non-waterfront property. Absorption rates for apartments would average 20 units
per month, an indication that a project would be successful in the marketplace.
Potential average rental rates range between $820 for a one bedroom apartment and
$1,265 for a three bedroom apartment. Refer to the Wolff study for more detailed
analysis of its findings concerning Palm Beach County, Delray Beach, and the North
Federal Highway area.
VACANT PROPERTIES FOR POSSIBLE AGGREGATION
One of the conditions in the North Federal Highway Corridor most favorable to
redevelopment of the area is the availability of large areas of vacant and
underdeveloped property. It is much easier to assemble land for larger redevelopment
projects when adequate areas of vacant or underdeveloped land under unified
ownership, or with few owners exist. A large scale project could become the focal point
for area redevelopment and act as a catalyst for additional development.
As identified in the "Existing Conditions" section, about 25% of the land in the study
area is vacant. Figure 8 (Page 30) shows the location of these parcels. Additionally,
many parcels in the area have only minor structures and are categorized as _.
"underutilized. " Table 8 identifies some of the largest areas of vacant or
underdeveloped properties in the area, their size and current zoning.
--
OPPORTUNITIES & CONSTRAINTS
PAGE 30
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- NORTH FEDERAL HIGHWAY ~ I I
PLANNING OEPARnAENT EXISTING VACANT PARCELS so' 47S'
CIN OF OELRAY BEACH. FL CIN LIMITS ...........
__ DIGITAL BASE MAP SYSTEM __ REDEVELOPMENT AREA - -
OPPORTUNITIES & CONSTRAINTS
PAGE 31
Table 8
North Federal Highway Corridor
Vacant and Underdeveloped Property
Parcel Acres Current Zoning
Yake Property and Adjacent 20.15 RL (Low Density Residential) and RM
(Medium Density Residential)
Arrow Trailer Park 1.80 GC (General Commercial)
Swap Shop 6.95 GC (General Commercial)
Pet Den (1025 N. Fed) area 2.74 GC (General Commercial)
W. side of Fed. @ Bond Way 3.19 GC (General Commercial)
Schwerin Property and Adjacent 7.09 GC and AC (Automotive Commercial)
Total 41.92
-
VACANT AND DILAPIDATED STRUCTURES
Probably the most important factor that hinders redevelopment in the North Federal
Highway corridor is the presence of a large number of vacant and/or dilapidated
structures. These structures give the area a blighted appearance, which discourages
investment in other properties. Additionally, many of these properties are also havens ,...,..,
for criminal activity, such as drug dealing and prostitution.
In recent years, many dilapidated structures have been eliminated. The former drug -
treatment center and the Rusty Anchor restaurant were demolished. The former
Tadpole Lounge, the Adult Book Store, the former trailer court south of the Swap Shop,
and the Miller Dodge site, were redeveloped or are in the process of being redeveloped
for new commercial uses. The elimination of the remaining dilapidated structures,
either through demolition or rehabilitation should be a primary focus of redevelopment
efforts in the area. Strategies for eliminating blighted properties are given in The ~_. -
Redevelopment Plan section of this report.
STREETSCAPE AND BEAUTIFICATION
STREETSCAPING
......"
The appearance of the rights-of-way in the study area has been cited as a problem by
several residents. By contributing to the area's run-down appearance, the lack of
landscaping and other improvements may hinder redevelopment. The installation of
streetscape improvements on East Atlantic Avenue was an important factor in the
revitalization of the downtown. Public improvements will be discussed in the
Redevelopment Plan section of this report.
-
OPPORTUNITIES & CONSTRAINTS
PAGE 32
ENTRANCE FEATURES
The North Federal Highway corridor is one of the principal gateways into the City of
Delray Beach. The City maintains a "Welcome to" monument where Federal Highway
splits into NE 5th Avenue and NE 6th Avenue, just north of George Bush Boulevard.
The placement of that monument symbolically separates the study area from the rest of
the City. That separation could be eliminated by relocating the entrance feature within
the median strip at the north boundary of the City.
FEC/DIXIE HIGHWAY CORRIDOR
The condition of the FEC Railroad/Dixie Highway area is a problem for the
redevelopment of the area. Noise from the railroad is a nuisance for residential and
commercial retail properties. There are a number of dilapidated commercial and
residential uses in this area that also contribute to the blighted conditions in the study
area. Improving the image of the FEC/Dixie Highway corridor will be 1m important
challenge in the revitalization efforts. Proposals for improving the appearance of the
Dixie Highway right-of-way and encouragement of new uses in the area are included in
the Redevelopment Plan section.
CRIME MANAGEMENT AND PUBLIC SAFETY
Eliminating the perception of North Federal Highway as a high crime area is a critical
issue in revitalizing the area. When an area is perceived as a high crime area, the
associated negative image tends to drive potential customers away from commercial
areas and residents away from neighborhoods. As the area becomes less appealing
for businesses and residents, property values fall. The reduction in property values
inhibits investment in the area and the resulting dilapidation of structures further
contributes to the negative image of the area. Drug abuse and sales, prostitution, and
other nuisance activities playa key role in negative perceptions of the North Federal
Highway corridor. Reduction and prevention of drug activity and other crimes are
critical to the redevelopment of the area. A review of efforts being made by the Delray
Beach Police Department, together with community groups is included in The
Redevelopment Plan section.
TRAFFIC CONCURRENCY
Traffic levels on North Federal Highway have historically been well below design
capacity. As stated earlier in this report, low traffic volumes have contributed to the
decline of the commercial businesses within the corridor. However, in terms of this
redevelopment plan, this situation is also an opportunity. Since new development must
meet traffic currency standards, the excess capacity on this roadway makes
development more attractive here than on suburban sites located on over-capacity
OPPORTUNITIES & CONSTRAINTS
PAGE 33
roadways that require substantial off-site improvements to mitigate impacts and meet
concurrency standards.
COASTAL HIGH HAZARD AREA & NORTH FEDERAL HIGHWAY
REDEVELOPMENT
The State's requirements for Comprehensive Plans are expressed in Rule 9J-5
(Minimum Requirements for Review of Local Government Comprehensive Plans and
Determinations of Compliance). The Rule contains the definition of Coastal High
Hazard Area as follows:
"Coastal high hazard areas" (also ''high hazard coastal areas') means the
evacuation zone for a category 1 hurricane as established in the regional
hurricane evacuation study applicable to the local government. [9J-
5.003(19)J
..
The definition of the Coastal High Hazard Area in Rule 9J-5 cites the "regional
evacuation study applicable to the local government". For Delray Beach, this study is
the Florida Hurricane Evacuation Study for the Treasure Coast (Post, Buckley, Shuh & --
Jernigan, 1993). In the study is a map which highlights the category 1, 3, and 5
hurricane surge limits. Treasure Coast Regional Planning Council staff reports that the
area shown for category 1 surge limit represents the Coastal High Hazard Area. A
portion of the Study Area lies adjacent to the western boundary of the mapped area.
This boundary represents the western-most land wetted by storm surge as opposed to --
a given degree of flooding. Land east of the boundary may, or may not be, wetted by
storm surge, based upon its ground elevation. The Coastal High Hazard Area (category
1 surge limit) in the Delray Beach area is, therefore, based on vertical elevation as
opposed to horizontal location. This area mayor may not coincide with the local
evacuation area. As an example, significant portions of the barrier island are not within
the category 1 surge limit area due to their high ground elevations, but are within the
area evacuated in the category 1 hurricane.
Planning for hurricane evacuation is under the authority of the Palm Beach County
Division of Emergency Management. The Division establishes the specific areas to be
evacuated from an impending storm event. Evacuation orders are given county-wide,
and must be easily understood on a geographic basis. Evacuation orders are based on
close coordination with the National Hurricane Center. In practice, for a category 1
hurricane that is not expected to intensify before landfall, an evacuation order will be
given for the barrier island and for mobile home parks. Therefore, only development on --
the barrier island has an effect on evacuation times in this storm category. This area
would not include any property within the Study Area.
In Delray Beach, three evacuation routes have been designated (Palm Beach County
Comprehensive Emergency Management Plan). These are: George Bush Boulevard to
1-95 via Swinton Avenue and Atlantic Avenue; Atlantic Avenue to 1-95; and Linton --
Boulevard to 1-95. These evacuation routes can accommodate the population of the
-
OPPORTUNITIES & CONSTRAINTS
PAGE 34
Coastal High Hazard Area with an evacuation time of 7-10 hours, as calculated by the
Technical Data Reoort of 1994. Treasure Coast Hurricane Evacuation Study. There are
no constraints to evacuation other than localized street flooding along the evacuation
routes and backlog traffic on 1-95 and the Florida Turnpike, the regional evacuation
routes. Since evacuation times are currently acceptable, and any additional population
resulting from redevelopment of the corridor will not be evacµated in the event of a
category 1 hurricane, such redevelopment will not adversely affect evacuation times or
potential shelter space.
BUSINESS ASSISTANCE AND ECONOMIC DEVELOPMENT
SMALL BUSINESS ADMINISTRATION 504 PROGRAM
The Small Business Administration (SBA) 504 program provides real estate loans for
small businesses. These loans are available for property acquisition or construction.
The SBA can provide loans of up to 40% of the total cost of a project, with 50%
provided through a direct bank mortgage, and 10% owner equity. Thê 10% equity
requirement allows businesses to retain more of their working capital rather than
investing it in the business location. Additionally, the interest rate for SBA financing is
slightly below the market rate and repayment terms are more favorable than for direct
bank financing.
SMALL BUSINESS ADMINISTRATION 7 A PROGRAM
The SBA 7a program provides financing for small businesses to expand or modernize
facilities; construct or purchase new facilities; purchase equipment, fixtures, furniture or
machinery; make improvements to leased property; finance increased levels of
receivable or inventory; or refinance existing debt. The SBA does not provide direct
loans, but guarantees loans from commercial lenders. Although loans obtained through
the 7a program do not have interest rates below market levels, they do have longer
repayment terms than non-program loans. The SBA 7a program can also help
businesses that lack collateral to obtain financing, if requirements for owner equity,
management ability, and cash flow are met.
CRA BUSINESS ASSISTANCE PROGRAMS
Subsidized Loan Program
The CRA subsidized loan program was originally developed in 1990 as an incentive for
property owners to upgrade the appearance of their properties. Working with lenders,
the CRA provides funding to "buy down" interest, thus providing subsidized interest
loans for businesses. The program was expanded in 1992 to include loans for the
creation of new businesses and interior modifications to existing structures to
accommodate new businesses.
OPPORTUNITIES & CONSTRAINTS
PAGE 35
Historic Facade Easements
The CRA provides financial assistance for owners of historic structures to maintain and
improve those structures in the form of Historic Facade Easements. To take advantage
of a Historic Facade Easement, the property owner sells an easement over the facade
of the structure to the CRA, giving the agency control of the appearance of the facade.
In exchange for that control the CRA provides funding assistance for renovations to the
facade. In order to qualify for Historic Facade Easements, property owners must .,,-,-
designate their structures to the Local Register of Historic Places.
Business Development Program
Although not currently funded, this program was established by the CRA to help foster
the establishment of new businesses in the Redevelopment Area. The program helps -"*-
subsidize start up costs for new businesses by providing rental subsidies for the first
year of long term leases and other expenses such as:
0 utility deposits; ..
0 advertising signs;
0 licenses; and
0 legal assistance.
Site Development Assistance Program
This program provides limited CRA funding in the form of grants or loans to cover land
development costs associated with new development or redevelopment. The program -
helps subsidize costs of site development such as site design and engineering.
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THE REDEVELOPMENT PLAN
PAGE 36
INTRODUCTION
The previous sections outlined existing conditions and the strengths and weaknesses of
the North Federal Highway corridor with respect to potential for redevelopment. Those
sections can be summarized as follows:
Since losing the tourist market, North Federal Highway has been unable to find it niche.
It has become a roadway of decreasing traffic volumes serving marginal businesses. It
is surrounded by low density neighborhoods that are unable to sustain existing
businesses in the area. The once active corridor has become increasingly blighted as
businesses have moved out and aging commercial buildings have become obsolete
and deteriorated. It also contains significant amounts of vacant property and structures,
which have a blighting influence on the area. Commercial property depth is inadequate
to support many of the larger building sizes required by today's retailers and although it
is possible to increase the depth of some commercial property, doing so would
encroach on existing low density residential development.
Residential uses consist of a mix of single-family homes and sub-standard multiple
family structures on adjacent lots. There is little or no buffering between residential
uses and commercial properties fronting on Federal Highway.
However, there is also tremendous redevelopment potential for the North Federal
Highway corridor. It is the next logical expansion of the downtown revitalization efforts.
As a whole the area is significantly underdeveloped. Vacant properties and buildings
provide opportunities for redevelopment and depressed property values make property
acquisitions in this area more affordable. Opportunity is evidenced by recent
reinvestment in the area with the construction of new housing and commercial
businesses.
This purpose of this redevelopment plan is to capitalize on the strengths of the area
and provide methods to deal with the weaknesses. This equates to the three main
proposals of this Plan:
0 Allow for increased residential density-Yake property
0 Allow a greater diversity of uses for commercial development-Industrial Overlay
District
0 Improve the image and physical appearance of the area-police, code
enforcement, neighborhood plans, beautification
FUTURE LAND USE
The North Federal Corridor is currently assigned four Future Land Use Map (FLUM)
designations. Those FLUM designations are Low Density Residential, Medium Density
THE REDEVELOPMENT PLAN
PAGE 37
Residential, Transitional, and General Commercial. The proposed FLUM designations
will be unchanged for most parcels in the study area. Implementation of the
Redevelopment Plan will, however, require one FLUM and two text amendments.
The vacant parcels adjacent to the Intracoastal Waterway (Yake Property) will be
redesignated to the new High Density Residential category to help encourage
residential development in the area. The High Density Residential FLUM designation
will permit multiple family residential at flexible densities up to 18 units per acre.
Density increases beyond the current maximum of 12 units per acre will be permitted
based on provision of a number of amenities, buffers, etc. to ensure a quality
development. The High Density Residential (RH) zoning district that establishes those
standards is described in the Land Development Regulations section of this report.
In addition to these changes, the City will continue to study the feasibility of changing
the existing commercial areas south of George Bush Boulevard, except existing auto
dealerships, from General Commercial to Commercial Core. As the downtown area
grows and develops, greater areas may be incorporated into the CBD. Given its
proximity to the CBD, this area may become a prime location for future redevelopment
projects.
The proposed FLUM for the North Federal corridor study area is attached as Figure 9
(page 38).
In addition to the above changes, amendments to the Comprehensive Plan text will also
be made to accommodate the provisions of the Redevelopment Plan.
_H·
ZONING
Most parcels within the study area will retain their current zoning. However, adoption of
the Redevelopment Plan will require some rezonings. The proposed Zoning Map for the
North Federal Corridor is attached as Figure 10 (page 39). -.
The proposed rezonings include:
0 Rezoning of 8 parcels from RM to RL (Low Density Residential); and
0 Rezoning of the two Yake properties from RM and RL to RH.
Rezonings from RM to RL will be in the area of Bond Way and NE 8th Avenue. RL
zoning exists both north and east of this area and seven of the eight parcels to be .-
rezoned are currently developed as single family homes. Rezoning of the Yake property
to the new RH district will take place when rezoning applications are submitted by a
private developer with a site and development plan. Processing of rezonings required
to implement the plan will be occur concurrent with the Future Land Use Map
Amendments for the area.
-
THE REDEVELOPMENT PLAN
PAGE 38
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_ NORTH FEDERAL HIGHWAY 1J~ 9r
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THE REDEVELOPMENT PLAN
PAGE 39
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THE REDEVELOPMENT PLAN
PAGE 40
LAND DEVELOPMENT REGULATIONS
The most important change to the Land Development Regulations (LDR) associated
with the Redevelopment Plan will be the establishment of the High Density Residential
zoning district. The district will be composed of a number of performance standards
that will allow for increases from the base density of 12 units per acre up to a maximum
of 18 units per acre. Density increases would be based on the proposed development
meeting and exceeding the performance standards. An additional change to the LDRs
will be the establishment of the North Federal Highway Overlay District in the GC
(General Commercial) zoning district. The proposed changes to the LDRs will be more
fully described in the following section.
Processing of LDR text amendments made necessary by the Redevelopment Plan will
be initiated immediately following the adoption of the redevelopment plan.
RH (HIGH DENSITY RESIDENTIAL) ZONING DISTRICT
The RH district will permit increases from the current (RM) maximum of twélve units per
acre up to a maximum of 18 units per acre. The district allows for increases in density
above twelve units per acre for projects meeting certain performance standards that are
designed to promote high quality development. Those standards will help ensure that
development in the district provides a high quality environment for the residents and
that negative impacts on adjacent areas are minimized by buffers, traffic management,
,etc.
Perlormance Standards
Proposed developments in the RH district will be awarded density increases based on
the provision of a number of amenities, perimeter buffers, architectural features, and
the like. The density increases will be awarded based on a site and development plan
that will be tied to the zoning of the parcel, as with SAD (Special Activities District)
zoning. Development proposals in the RH district will be reviewed by the Planning and
Zoning Board to determine maximum allowable density for the project.
Zoning to be Tied to a Site Plan
All uses and structures which are to be allowed in a particular High Density Residential
district shall be established on a site and development plan, including landscaping and
elevations, which is processed and adopted as part of the rezoning ordinance. The
plan that is adopted with the rezoning may be conceptual in nature, however, the level
of detail must be sufficient to determine that the applicable performance standards are
being met. Final approval of the detailed site plan, landscape plan, elevations, and
preliminary engineering plan is by the Site Plan Review and Appearance Board.
As the permitted density of a development is to be determined by the site plan, the
development of an RH zoned parcel will be tied to a site plan. Any changes to the site
THE REDEVELOPMENT PLAN
PAGE 41
plan that would affect the performance standards used in calculating the development's
density will be processed in the same manner as a rezoning.
DEPTH OF COMMERCIAL DEVELOPMENT
The depth of most commercial properties in the North Federal Highway area is limited
by existing residential neighborhoods, road and railroad rights-of-way, and F.I.N.D. -...,.
parcels. The Redevelopment Plan does not propose any expansion of the commercial
area at this time. However, expanding the depth of the commercial area to permit
planned commercial, rather than strip commercial development may be desirable in the _.-".
future. The City will support private sector Rezoning and FLUM amendment
applications that expand the commercial area to allow larger scale, well planned
commercial development. Commercial developers in the North Federal Highway
Corridor must make every effort to provide sufficient buffers to ensure compatibility with
existing residential areas.
-
FEDERAL HIGHWAY LIGHT INDUSTRIAL AREA
The parcels on the west side of Federal Highway and north of NE 14th Street have a
number of unique characteristics. The small size of the parcels, their proximity to the
FEC Railroad corridor, and the relatively light traffic on Federal Highway make
commercial development difficult. One possible solution to the development problems
of the area is to permit uses that are adapted to the unique conditions in the area.
One new use in that area that has been particularly successful is Dee-Car Furniture
outlet. The location serves both as a facility for the refinishing of patio furniture and as
a retail outlet for the finished product. The use is ideal for the location due to the
access available to the rear of the property for service vehicles from Dixie Highway and
the frontage on Federal Highway for customers. The type of light industrial/retail use ........-
described below may provide opportunities for future revitalization of the area.
North Federal Highway Overlay District
In order to permit and encourage the types of uses envisioned for the area, changes to
the comprehensive plan and land development regulations will be necessary. As the
intent of the redevelopment plan is to allow both light industrial and more traditional
commercial uses, an overlay district is appropriate. The proposed overlay zoning
district would encourage light industrial/retail development similar to Dee-Car in --
intensity, while still permitting more conventional commercial development. The
provisions of the district are outlined below.
-
THE REDEVELOPMENT PLAN
PAGE 42
Uses
All uses currently permitted in the GC zoning district would be permitted in the overlay
district. In addition to those uses, fabrication and/or assembly of manufactured
materials or parts for distribution or sale, such as sheet metal, sign shops, glass shops,
electronics, cabinet and furniture making; and the wholesaling, storage and distribution of
products and materials, other than self-storage facilities would also be allowed. These
additional uses would require approval as Conditional Uses, to ensure compatibility with
adjacent areas.
Other provisions
The overlay district will require that the light industrial uses operate as a part of or in
conjunction with a permitted service, retail or business use. Additionally, the light
industrial aspect of the business must be operated indoors and be oriented toward
Dixie Highway. All service areas must be screened adequately to ensure compatibility
with the residential area to the west. Structures in the overlay area must maintain a
commercial appearance, regardless of use. Retail and office areas may "be accessed
from Federal Highway.
ELIMINATION OF DILAPIDATED STRUCTURES AND PROPERTIES
As previously described in the existing conditions section of this report, many
dilapidated and/or abandoned structures exist in the study area. Those structures
impede the redevelopment effort by creating an image of blight and providing havens
for criminal activity. Elimination of blighted properties in the area is one of the first
priorities for the revitalization of the area. The intent of the redevelopment plan is to
use eminent domain sparingly to obtain properties for redevelopment. However,
because of the serious impediment to redevelopment imposed by dilapidated
properties, the CRA will pursue acquisition of these properties if private sector initiatives
do not quickly eliminate them.
The most noticeably deteriorated structures are as follows:
0 784 N. Federal Highway - Delray Silver Plating
0 802 N. Federal Highway - vacant service station
0 1402 N. Federal Highway - vacant industrial
0 1710 N. Federal Highway - Arrow Trailer Park
0 2001 N. Federal Highway - Delray Swap Shop
0 2101 N. Federal Highway - Vacant Storage
0 2399 N. Federal Highway - The Antique Marketplace
0 2512 N. Federal Highway - vacant motel
0 2605 N. Federal Highway - vacant multiple family residential
0 2706 N. Federal Highway - vacant service station
0 2713 N. Federal Highway - Gulfstream Lodge
THE REDEVELOPMENT PLAN
PAGE 43
0 13075 Palm Trail - multiple family residential
0 828 N. Lake Avenue - multiple family residential -',--.
The Swap Shop presents a number of unique problems. The property serves as a
major traffic generator and activity center in the area. While the traffic generated by the
Swap Shop may benefit some area businesses, the use is an under-utilization of a
large commercial parcel. The use also contributes to a negative image of the area.
The City and CRA will support private sector proposals to redevelop the site as a more
traditional commercial project or as a high density residential project.
ST ABILlZA TION OF EXISTING RESIDENTIAL NEIGHBORHOODS
There are three existing residential areas (La Hacienda, Allen Avenue, and Eastview
Avenue) in the study area. A fourth residential area (Bond Way and vicinity) is located
to the south and east of the study area. All of these residential areas contain older
housing stock. As a result, some of the residential structures are deteriorating. The
City provides water and sewer service to the entire study area and haš resurfaced
some residential streets. Some of these areas, however, still lack some desirable
infrastructure. These areas are included in the infrastructure improvement plan outlined ---
later in this section. In addition to those improvements, the City and CRA will support
neighborhood based improvement plans. Those plans could include the creation of
special assessment districts for public improvements.
CRA NORTH FEDERAL CAPITAL IMPROVEMENT PROGRAM --
TAX INCREMENT REVENUE PROJECTIONS
_.--
The North Federal Highway corridor is currently assessed (1995) at $36.87 million. As
redevelopment within the area proceeds, the total assessed value is projected to ---
increase substantially. Based upon certain assumptions, projections of future
assessed values are made in Table 9. Over a 15-year period, this value is projected to
increase by nearly $100 million. The assumptions include the following:
0 Kokomo Key, a 133-unit townhouse project, is completed by mid-1997, and
its assessed value amounts to $10 million by 1999.
0 The Yake property, a 17.5 acre tract of land, is approved for a 300+ unit
luxury apartment community resulting in a $25 million addition to the tax roll --
by 2000.
0 The Swap Shop, a 7 acre parcel of land, is redeveloped to either a ~_._-
commercial retail center or luxury housing resulting in an additional $10
million to the tax roll by 2001.
----
-
THE REDEVELOPMENT PLAN
PAGE 44
0 Vacant land, approximately 30 acres, is redeveloped over the 15-year period
resulting in an additional $9 million to the tax roll.
0 Existing buildings and under utilized land, approximately 500,000 square
feet, are redeveloped over the 15-year period resulting in an additional $20
million to the tax roll.
0 The values of the property within the district increase at an annual rate of 2%
commencing in 2000.
As shown in the table, the Community Redevelopment Agency is projected to receive
approximately $7 million in increased revenues over the 15-year period due to
increased property values. The CRA contemplates utilizing these increased revenues
for a variety of programs whose main purpose is to attract reinvestment in the area by
the private sector. Current programs include the "Subsidized Loan Program," "Site
Development Assistance Program," and "Business Development Program." Future
programs may include street beautification, the acquisition of extremely blighted
properties, and the development (with City Assistance) of a new park. SolJtces of funds
and expenditures for these projects is shown in Table 10. The following briefly
describes these potential future projects.
STREET BEAUTIFICATION
Within the study area, there are three small residential neighborhoods described as the
Allen Avenue neighborhood, the Eastview Avenuå neighborhood, and La Hacienda
neighborhood. The CRA would propose, at the appropriate time, street improvements
to the neighborhoods which may include street lights, street trees, the addition of
sidewalks, and the reconstruction of drainage swales. In addition, an entry feature, if
desired by the neighborhoods, could be included. The CRA would propose that each
neighborhood create a property improvement district which, in turn, would be the legal
entity with whom the CRA would create a partnership. Each property improvement
district would contribute a portion of the monies needed to pay for the improvements. It
is contemplated that the neighborhood districts would contribute up to 50% of the costs
but not including financing costs which the CRA would absorb.
There are approximately 6,950 linear feet of road frontage within these neighborhoods.
If the cost of the improvements were assessed on a linear foot basis over a 10-year
period, the annual cost to a property owner having a 50' wide lot would be $189, and
the owner of a 75' wide lot would be assessed $283. In addition to contributing monies
to the improvements, the formation of a property improvement district would also give
the owners a collective voice in improving their neighborhood.
Two other larger projects which would follow the neighborhood projects and be subject
to availability of funds would be the beautification of Federal Highway from NE 4th Street
north to the Boynton Beach City line and the beautification of the FEC Railroad corridor
from George Bush Boulevard north to the Boynton Beach line.
THE REDEVELOPMENT PLAN
PAGE 45
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THE REDEVELOPMENT PLAN
PAGE 46
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THE REDEVELOPMENT PLAN
PAGE 47
The Federal Highway beautification would include pedestrian street lights, wider
sidewalks, street trees, and signage. The purpose of improving Federal Highway is to
add more lighting and improve security to encourage more pedestrian traffic and to
create a dramatic tree-lined boulevard for shoppers, residents, and passers-by to enjoy.
The F.E.C. project would include landscaping and fencing. Thø purpose of the project
is to buffer the railroad from the surrounding neighborhoods and to ensure better
security through lighting.
ACQUISITION OF BLIGHTED PROPERTIES
The CRA would propose, subject to available funds, to acquire certain properties which
have a severe blighting influence on the area. For example, the Arrow Trailer Park is a
priority acquisition. The CRA would, in turn, either resell the property to a user who -
would guarantee redevelopment consistent with the stated goals and objectives of the
plan. In some cases the CRA may demolish existing structures and clean up a site.
The 15-year financial projection assumes the CRA would allocate $1.5 million for -.
acquisition. A list of potential properties is found on page 42. -
CITY PARK ~.."-
An opportunity to create a new City park exists on a 3.5 acre parcel fronting on Federal
Highway. The property has been a nursery for over 50 years, known as Delray
Nursery, operated by the Nitschke family. The site contains many fine examples of
trees and could become the City's first botanical park, one which not only neighboring
residents could enjoy but all citizens of Delray Beach. The redevelopment plan -"'¥
proposes that the CRA acquire the property and the City would develop the site.
BOND FINANCING --...
In order to consider the previously discussed projects, the CRA would sell revenue
bonds to raise the necessary capital to fund the costs. The bonds would be sold in
stages in step with the realization of tax increment revenues. It is projected in the 15-
year plan that the CRA would sell approximately $2,250,000 in bonds.
INFRASTRUCTURE IMPROVEMENT PLAN
The City provides adequate utilities and roadways to most parcels in the Federal
Highway corridor. However, a number of changes will be required to improve the -
commercial climate along Federal Highway itself, and help to stabilize existing
neighborhoods. The following section outlines the proposed infrastructure
improvements in the area, scheduling of those improvements, and funding sources for
future improvements.
-
THE REDEVELOPMENT PLAN
PAGE 48
TRAFFIC CIRCULATION
Vehicular Traffic Circulation
Federal Highway:
The Florida Department of Transportation (FOOT) will be installing a number of
improvements along North Federal Highway, starting in 1997. Those improvements will
consist of the introduction of bicycle lanes and the reconfiguration of median cuts to
provide for smoother traffic flow in the area. On-street parking will be retained in the
area. Due to the planned Federal Highway improvements, few changes to this area are
proposed in the immediate future.
One problem related to the FOOT roadway improvements is the proposed elimination of
the median cut for Royal Palm Boulevard. The Royal Palm Boulevard right-of-way is
one of the most likely accesses to Federal Highway for future development of the Yake
property. A developer proposing to use Royal Palm Boulevard will have to work with
FOOT to retain the median cut at this location. ..
According to the Palm Beach County Roadway Map and the City's Comprehensive
Plan, the ultimate right-of-way for Federal Highway is 120'. The proposed FOOT
improvements will be completed in the existing 100' right-of-way. Because the 120'
width is included in the County and City plans, the City is required to collect additional
right-of-way with any development proposal in the area. As further roadway
improvements are unlikely in the foreseeable future, additional right-of-way may not be
necessary. In order to avoid unduly burdening future development in the area, the City
may want to consider alternate provisions for right-of-way collection in the area. A
number of possible solutions exist. The City could simply not collect the right-of-way, or
could accept reservations in required landscape areas. Another possible solution
would be to have Federal Highway identified as a Constrained Facility to eliminate
requirements for additional right-of-way.
Bond Way:
The residents of the Bond Way residential area have expressed concerns regarding
traffic encroachments into their neighborhood. In association with the implementation
of the redevelopment plan, the City will consider changes to reduce traffic
encroachment into the neighborhood. Those changes may include the closure of Bond
Way, to the east of the commercial area. If closure is not appropriate, the City would
also consider traffic calming measures (speed humps, choke points, etc.) The
neighborhood association must apply to the City through the Traffic Pattern Modification
Process before any changes can be implemented.
THE REDEVELOPMENT PLAN
PAGE 49
Dixie Highway:
No improvements to Dixie Highway are currently required to accommodate traffic
volumes. The appearance of Dixie Highway and the adjacent railroad right-of-way,
however, is a serious concern. The CRA will use a portion of the tax increment --
generated by new development in the redevelopment into landscape improvements for
Dixie Highway. I n order to accomplish those improvements, the CRA must obtain an
agreement from the FEC Railroad to place improvements in their right-of-way. Similar
agreements are in place in Lantana, Lake Worth, and Boca Raton. An increase in the
landscape buffer requirements for properties fronting along Dixie Highway will also be
considered as a measure to screen these uses from the adjacent residential area to the
west.
Pedestrian Traffic Circulation
Sidewalks exist for all of the commercial areas along Federal Highway and 5th and 6th
Avenues. Few residential areas in and around the study area have sidewalks. Where
adequate road R!W is available, sidewalks will be installed in the residential areas as
funds become available. The City annually prepares a five-year plan, which prioritizes
sidewalk and other infrastructure improvements, based on need and the availability of _·_m
funds. Neighborhoods wishing to have sidewalks installed more quickly than the
scheduled date in the five-year plan may request that the City and CRA establish a
neighborhood improvement district. In that area, improvements would be funded
through a bond issued against special assessments to properties in the specified
district.
Dead-end streets in the area creates fragmentation of the roadway system within the
existing residential neighborhoods. However, the residents do not want the streets to
be connected for automobiles, due to concerns with possible traffic problems. A
pedestrian system connecting new residential development along the Intracoastal
Waterway to the existing neighborhoods and a new neighborhood park would help to
create a "sense of community" in the area. Such a system could be created in
conjunction with development of the Yake property. The system could be incorporated
into the landscape setbacks of the development to minimize disruption of the
developable areas of the site. That issue will be considered with any application for
development of that area.
PUBLIC TRANSPORTATION
Public Transportation in the area has been greatly enhanced by the recent
improvements to Palm Tran service. The increased routes and shortened waiting times -
for buses has greatly improved the accessibility and convenience of transit service to
residents. Palm Tran may be supplemented by the establishment of the City's in-town
shuttle service, which has been identified as a potential means of mitigating traffic in the
City's Transportation Concurrency Exception Area (TCEA). The shuttle system is
-
THE REDEVELOPMENT PLAN
PAGE 50
currently proposed to serve primarily the downtown area, but could be expanded to the
North Federal area if future conditions warrant the expansion.
WATER DISTRIBUTION
Water service is provided to properties throughout the study area. Recent water
improvements in the area provided a network of 6 and 8 inch water lines in the area.
While some extensions may be needed to serve vacant properties, no extensions or
upgrades are required for existing developments.
SEWER COLLECTION
Like water service, recent improvements in the area include provision of 6 and 8 inch
mains serving the entire developed portion of the study area. No upgrades will be
required to serve existing development. Extensions will be required with new
development of vacant parcels.
STORM WATER COLLECTION ..
Since the area east of Federal Highway lacks positive drainage, any development or
redevelopment of this area must control run-off so that existing residential properties
are not negatively impacted. This impact will be addressed with approval of the project
site plan so that existing residential neighborhoods are not negatively impacted.
ELECTRICAL DISTRIBUTION AND STREET LIGHTING
Electrical service is provided throughout the study area. No upgrades are required. At
the 1995 annual infrastructure meeting, many residents and business owners
expressed concerns regarding street lighting in the area. The City in cooperation with
. Florida Power and Light recently increased the intensity of the street lights in the North
Federal Highway area.
FIRE PROTECTION
Concerns have been raised regarding the distance from the nearest fire station to
properties in this area. The Delray Beach Fire Department indicates that existing fire
stations are sufficient to provide adequate response times and service to existing
development. The City will monitor the need for fire protection as new development is
proposed.
POLICE AND SAFETY
The Police Department has initiated a number of programs intended to reduce crime
problems in the study area and surrounding neighborhoods. The following programs
are included in the overall crime reduction strategy.
THE REDEVELOPMENT PLAN
PAGE 51
Community Policing
--..
The cornerstone of Police Department efforts to reduce crime in Delray Beach is the
Community Policing program. Community Policing emphasizes a cooperative effort
between the Police and the community to find long term solutions to the community's ~..
problems. Community Policing is intended to both increase the police presence in the
neighborhood and improve relations between the Police and residents. This is a
departure from past police methods which emphasized officers in patrol cars reporting '..,-,.
to emergency radio calls. In addition to routine patrol activity, the Community Officers
help to organize community improvement activities, such as trash pick-ups, paint-up
projects and organization of neighborhood watches. Police sub-stations are often used --
to strengthen the tie between the police and the neighborhoods they patrol. It is
recommended that a sub-station be established within the study area.
Other
Residents and business owners in the Federal Highway area have expressed concerns -
over crime in the area. Although prostitution and drug dealing have beeIT' cited as the
major crime problems, they have most often been associated with particular properties
rather than distributed throughout the area. The City has moved to eliminate parcels
that were particular nuisances, including an adult book store. A number of problem
properties, including the Arrow Trailer Park and several multiple family structures in the
area still exist. The City and CRA will be proactive in the area to applying TIF funds
from new development in the area to the purchase and elimination of those problem
properties.
PARKS AND RECREATION
As described in the Existing Conditions section, the nearest public parks to the study _..'-
area are the public beach and Veteran's Park, both approximately 2 miles from the
residential part of the area. The City is exploring the possibility of including a
neighborhood park in the study area. Construction of a park in the area could be
financed in part by the parks and recreation impact fees and tax increment revenues
generated by new development in the area .
During the redevelopment planning process, the City identified three possible sites for a
neighborhood park in the study area (see Figure 11, page 52). Neighbors did not
support the Intracoastal Waterway site (Site 1), located at the east end of Allen Avenue,
because it would attract outsiders into the neighborhood. Acquisiton of property along
the Intracoastal Waterway would also have been very expensive. Site Two, known as
the Donnelly Tract, is a preservation area and is to remain passive. Therefore, the
most likely candidate at this point appears to be Site 3, located on the south side of
Eastview Avenue. The site's close proximity to Federal Highway would make it more
visible and accessible to residents outside the immediate area. Since this site is an
existing nursery, it also has the potential to become the City's first botanical park.
-
THE REDEVELOPMENT PLAN
PAGE· 52
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N FIGURE 11
GRAPHIC SCALE
1.35' 0 950'
- NORTH FEDERAL HIGHWAY ~pJ I I
.,
PLANNING DEPARTMENT ALTERNATIVE PARK SITES 50' <475'
CITY OF DELRAY BEACH. FL CITY LIMITS .1.1.'.'.'.
-- DIGITAL BASE MAP SYSTEM -- REDEVELOPMENT AREA _ _
_·'P.
THE REDEVELOPMENT PLAN
PAGE 53
In addition to the proposed park improvements, the City supports the construction of a
pedestrian path connecting new and existing residential developments and the -,-
proposed park.
SITE ANAL YSIS BY USE
SUPERMARKET
The North Federal Highway Corridor is not currently served by a Grocery Store.
Following the closing of the Winn-Dixie store at Gulfstream Boulevard and Federal --
Highway, the closest grocery stores are the Publix stores at the Pineapple Grove center
(NE 2nd Ave. and NE 3rd St.) and at Woolbright Road and Federal Highway. Based on
those distances, a market may exist in the area for a grocery store and possibly some -
local retail space. This market potential will be increased by new housing construction
at Kokomo Key (133 units) and the possible multiple family development of the Yake
property. ..
Typically a, community shopping center will contain a principal grocery store of about
40,000 square feet and additional retail space up to a total of about 100,000 square .---
feet. The one site with the potential for this type of development in the area is the three
parcels that comprise the Swap Shop. This site, with approximately 7 acres, could
accommodate a center with a grocery store and up to 30,000 square feet of additional
retail space.
A former grocery store, located at the southeast corner of Federal Highway and N.E
14th Street, is too small to accommodate a typical Publix or Winn-Dixie store. The
structure currently contains a resale shop, which is an under-utilization of the space.
With considerable improvement, the site could be established as a specialty grocery --...
store, such as Woolly's or Wholly Harvest. The demographics and condition of the area
would not currently be ideal for that type of use, but new development in the area would
make the location more appealing to such a use. _..'.
FAST FOOD
The small size of parcels on North Federal Highway are conducive to their development
as fast food locations. Fast food locations typically require less than an acre of land
_..-"
and property depth of less than 300 feet. Many of the existing vacant parcels along
Federal Highway are of that size and shape. However, the relatively low traffic volumes
currently prevalent on Federal Highway make that type of development unlikely at ---'~
present. To underscore that fact, the only existing fast food chain restaurant in the area
recently closed. Increases in traffic associated with new residential development in the
area and renewed commercial development may make fast food restaurants a more
feasible type of development for the area in the future.
n.__·
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THE REDEVELOPMENT PLAN
PAGE 54
AUTOMOBILE DEALERSHIPS
Automobile dealerships and repair uses are a significant land use in the area. Three
full service dealerships, 3 other auto sales uses, and 14 other auto-related uses are
currently in the area. The three full service dealerships are currently in the AC
(Automotive Commercial) zoning district. The Redevelopment Plan proposes no
changes to those parcels. The remaining auto uses are currently zoned GC and are
thus non-conforming. Due to the location away from the primary auto sales area on
South Federal Highway and the lack of new car franchises for manufacturers not
represented in Delray Beach, establishment of new full service dealerships in the area
is limited. However, it is possible that expansion of existing new car dealerships may
occur. While the City will consider rezonings to accommodate well-planned expansions
of existing new car dealerships, rezonings to accommodate other auto-related uses,
such as service and repair, will not be supported.
HOUSING OPPORTUNITIES
..
As previously identified in the plan, many vacant parcels exist in the study area.
Among those parcels are several sites with potential for high density residential
development. Several residential developers have expressed interest in developing
these sites with a high-end rental apartment community, taking advantage the
Intracoastal Waterway frontage as an amenity. The redevelopment plan proposes to
establish High Density Residential zoning and FLUM districts that accommodate that
type of development. While the City supports this type of development in the area,
potential developers must take care to ensure compatibility with adjacent communities
and municipalities. The City will only support residential development of these important
parcels that is of the highest quality.
EXISTING NEIGHBORHOODS
This redevelopment plan recognizes the importance of existing neighborhoods in and
around the study area. The City is committed to the improvement of the entire area,
including the existing neighborhoods. Compatibility with existing neighborhoods will be
a key consideration with the approval of any new development in the study area.
Additionally, the Infrastructure Improvement Program identifies some improvements
that the City may undertake to help stabilize those neighborhoods. The City will provide
whatever support is available to assist in the creation and implementation of
neighborhood plans for those areas. The CRA will expend funds on behalf of the
neighborhoods in order to create a plan and a Special Assessment District. Funding for
some public improvements may be available from the tax-increment generated by new
development in the area. Other improvements may be financed through the
establishment of special assessment districts created pursuant to a neighborhood plan.
~,._..
THE REDEVELOPMENT PLAN
PAGE 55
IMPLEMENTATION
_...
PROCESSING OF COMPREHENSIVE PLAN AND FLUM AMENDMENTS
Adoption of the Redevelopment Plan will require a number of amendments to the City's ~..--
Future Land Use Map and Comprehensive Plan. Those amel1dments will be adopted
as a portion of Comprehensive Plan Amendment 96-1. Figure 9 (page 38) shows the
proposed FLUM designations for the North Federal Highway Corridor. In addition to the _.-
FLUM changes, the description of the General Commercial land use designation
contained in the Future Land Use Element must be amended to address the potential
for light industrial uses in the North Federal Highway area.
PROCESSING OF REZONINGS
-"."
Most parcels within the North Federal Highway Corridor will retain their current zoning.
However, adoption of the Redevelopment Plan will require some rezonings. The
proposed rezonings are described at the beginning of The Redevelopment Plan section ~."-
of this report and Figure 1 0 (page 39) shows the proposed zoning desigrrations. The
required rezonings will be considered by the Planning and Zoning Board and City
Commission concurrent with or shortly after consideration of the FLUM amendments for
the area.
PROCESSING OF LDR AMENDMENTS
Creation of the North Federal Highway Overlay District and the establishment of the
new RH (High Density Residential) zoning districts will require a number of text
amendments to the Land Development Regulations. Processing of those amendments
will be undertaken by the Planning and Zoning Board and City Commission concurrent
with consideration of the FLUM amendments for the area.
LAND ACQUISITION AND AGGREGATION
As funds accrue from the tax increment created by new development, the CRA will
have funding available for property acquisition. The CRA will actively seek acquisition
of dilapidated properties in the study area. Acquisition of parcels will be prioritized
according to their condition and accomplished as funding becomes available. Use of
condemnation for acquisition of dilapidated properties will be kept at a minimum, but
may be used to eliminate problem properties.
-,-...
-
~, .
DELRAY BEACH
F l 0 . ! I) A,
Delray Beach Police Department ......
All-America City
300 West Atlantic Avenue · Delray Beach, Florida 33444-3695 , 1111,;
(407) 243-7888 Fax (407) 243-7816
1993
MEMORANDUM
TO: City Manager David T. Harden /
FROM: Chief Richard G. Ovennan ~
DATE: October 3, 1996
SUBJECT: CHRONOLOGY OF SUNDAY EVENING GATHERINGS
IN DELRAY BEACH
We began experiencing gatherings of large numbers of young people on Sunday,
September 1, 1996. On this particular Sunday a permit was issued by the P.B.S.O. Parks
Division for a family reunion gathering with an estimated number of attendees of 200.
The location was Lake Ida Park adjacent to the Delray Beach Playhouse. The actual
crowd estimate was 1,000 to 1,200. Subsequently, a number of residents along N. W. 9
Street complained of excessive traffic, speeding vehicles and loud playing of auto stereos.
A second pennit was issued for the following Sunday, September 8, 1996, at the same
park for a picnic with a crowd estimate of 150 to 200. The actual crowd estimate for this
event was approximately 250. Following the September 8th event Police Department
representatives met with representatives of P.B.S.O. to discuss this situation due to
complaints coming from the neighborhood and the fact that at the conclusion of these
parties/picnics when the parks would close (dusk), a large number of those attending
would then travel to West Atlantic Avenue where they would gather. During the meeting
it was decided that the permit would be changed to Lake Ida Park on the west side of the
lake so that the impact on the neighborhood with respect to traffic and noise would be
eliminated. In addition~ P.B.S.O. required that deputies be hired by the party sponsor.
The permit allowed for a maximum number of attendees at 250. We assigned four (4)
officers to monitor this event and handle whatever traffic problems that would result.
On Sunday~ September 15~ 1996~ an estimated crowd of 1,000 gathered at Lake Ida Park,
and once ag~ following the park closing traveled to West Atlantic Avenue. Following
this event P.B.S.O. revoked the permi~ however, revoking the permit in itself did not
solve the problem, it merely prohibited the playing of amplified music. During the
meeting with P.B.S.O. it was learned that a number of the attendees had previously been
WS 3
-
SUBJECT: CHRONOLOGY OF SUNDAY EVENING GATHERINGS
IN DELRA Y BEACH
October 3, 1996
Page 2
going to Gaines Park in West Palm Beach on Sundays until the West Palm Beach Police
Department and P.B.S.O. shut down the parties at Gaines Park. This was done due to the
fact that crowds were growing to 5,000 to 6,000 people without adequate parking
facilities and were having a very serious negative impact upon the neighborhood adjacent
to Gaines Park.
On Sunday, September 22, 1996, a large gathering of people was noted within the fenced
area of the Catherine Strong Center. This group was orderly and cooperative and did not
cause any complaints ûom the adjacent neighborhood. It was noted that the gathering was
a combination of neighborhood residents and some of the group that had been attending
the gatherings at Lake Ida Park. The coordinators for the gathering at the Catherine
Strong Center indicated that permission had been obtained ûom an unknown member of
the staff of the Headstart Program located at Catherine Strong.
On Sunday, September 29, 1996, another gathering took place at the Catherine Strong
Center. By 9:00 p.m., the roads were jammed and when the number of attendees reached
200, the gates were closed by the event coordinators. This resulted in those being denied
access parking outside of Catherine Strong and then climbing over the fence and joining
the party. At 10:00 p.m., the party was shut down and attendees departed. A large
number traveled to West Atlantic Avenue.
With respect to the gatherings at the Catherine Strong Center, it has been determined that
the City, and only the City, has the ability to grant permission for the use of that property.
This property is located in a residential area and lacks both adequate lighting and
restroom facilities. It is, therefore, not a suitable location for events of this nature. These
gatherings have been attracting both residents of Dekay Beach and residents ûom other
cities. To this point these gatherings have been orderly and the only criminal violations
that have been noted have been instances of consuming of alcohol, smoking of marijuana
and urinating in public. By and large the attendees have responded appropriately when
asked to desist by the police officers staffing these events. These events have, however,
caused the Police Department to have to make scheduling modifications, and in some
instances, pay overtime in order to maintain a visible police presence.
The Police Department would like guidance ûom you and perhaps the Mayor and
Commission on how you would like this issue addressed. Answers to the following
questions will help us design a strategy for dealing with this issue:
1. Does the City of Dekay Beach desire to host and/or facilitate large, unorganized
gatherings of people on Sunday evenings?
SUBJECT: CHRONOLOGY OF SUNDAY EVENING GA mERINGS
IN DELRAY BEACH
October 3, 1996
Page 3
2. If so, at what location should they be directed?
3. If the decision is yes, then it will require substantial rescheduling of our officers nom
their nonnal duties to special Sunday night details. Should this be done through
payment of overtime or should this be done through changing our deployment?
Considerations:
1. Police overtime is substantial currently because of the number of special events
already held during the year in Dekay Beach.
2. If the crowds grow as they did in Gaines Park, West Palm Beach, then it will have a
significant impact on our ability to provide services to the rest of the city during these
events as well as the reductions during the week should we redeploy rather than pay
overtime.
3. Who will be responsible for the cost of lighting, restroom facilities and liability for
damage or injury?
Your direction in this matter is very important in that we believe the philosophical
questions concerning this issue are decisions more appropriately made outside of the
police department. We will design our strategy based on your guidance.
Thank you for your thoughtful consideration.
ppt