TO: Board of County Commissioners
THROUGH: John A. Titkanich, Jr., County Administrator
FROM: Patrick J. Murphy, Chief, Long Range Planning
DATE: January 28, 2026
SUBJECT: County Initiated Request to Amend the 5-Year Capital Improvements
Program and the Capital Improvements Element of the Comprehensive
Plan for the Period FY 2025/26-2029/30
__________________________________________________________________
BACKGROUND
Indian River County adopted its comprehensive plan on February 13, 1990. According to state law, all development activities must comply with the comprehensive plan, and all county activities must conform to their policies.
While local governments can amend their comprehensive plans periodically, there is no annual requirement to update them, except for the Capital Improvements Element (CIE). The CIE is the only element that must be amended every year in compliance with state regulations.
State law allows amendments to the Capital Improvements Program (CIP) schedule and its supporting data and analysis through local government ordinance adoption/amendment procedures. These procedures require only one hearing, while other comprehensive plan amendments involve multiple public hearings and several months of review.
To comply with state requirements, County staff has prepared the annual update of the County's existing Capital Improvements Element.
ANALYSIS
The process for updating the CIE involves collaborating with the budget and finance departments to gather information about past and predicted future revenues and expenditures, then working with each county department to determine the status of their capital improvements programs. For each department, data related to completed and proposed projects, costs, revenues, prioritization, and other factors were collected. Individual departments worked collectively with the Office of Management & Budget and County Administrator to make any necessary changes to ensure financial viability and appropriate workload. Based on all these inputs, the tables and text of the 5-Year Capital Improvements Program schedules have been revised and updated.
Proposed Changes to the Capital Improvements Element
• Capital Improvements Program
The Capital Improvements Program (CIP) lists all programmed capital improvements for fiscal years 2025/26 through 2029/30. The projects included in the CIP were chosen based on their need and the County's financial capacity to complete them. As per the CIP, the total cost for all the projects planned for the next five fiscal years is $656,309,072.
The CIP is structured in eleven (11) categories: Coastal Management, Conservation and Aquifer Recharge, Emergency Services, Facilities Management, Lagoon, Law Enforcement and Corrections, Recreation and Open Space, Sanitary Sewer and Potable Water, Solid Waste, Stormwater Management, and Transportation.
Coastal Management
Beach renourishment projects in sectors 3 and 5 represent the coastal management capital projects that are scheduled to take place within the next five years. These projects will be funded by various sources such as the Federal Emergency Management Agency, Florida Department of Environmental Protection, Florida Division of Emergency Management, and the County’s Beach Restoration Fund. The total cost for these projects for the fiscal year 2025/26 through 2029/30 is estimated to be $6,797,025.
Conservation and Aquifer Recharge
The focus of capital projects for conservation and aquifer recharge is to improve existing conservation lands. These improvements include constructing passive recreational access facilities such as boardwalks and kayak launches, along with associated enhancements such as parking and restroom facilities. Additionally, projects to stabilize, improve, or preserve historic structures will be undertaken. These projects will be funded from various sources, including environmental land bonds, grants, optional sales tax, boating improvement funds, upland mitigation funds, and park impact fees. The total expenditure for the projects falling under this category for fiscal years 2025/26 through 2029/30 is $15,784,020.
Emergency Services
Emergency services have numerous capital projects lined up for the upcoming fiscal years of 2025/26 through 2029/30. These projects include acquiring multiple ambulances and fire trucks, undertaking construction work on Emergency Services Stations 7, 15,16, and 17 and upgrading various equipment and facilities. The funding for these improvements will come from impact fees, a one-cent local optional sales tax, FEMA and PEMT grants, and emergency services district millage. The total expenditure for these projects totals $74,996,694.
Facilities Management
Over the next five fiscal years, there are several facilities management capital improvement projects that will cost a total of approximately $27,941,495. These projects will include expansion of County Administration Building B, fiber optic cable connectivity, renovations to several county buildings, expansion of the EOC/Fire Administration building, Fellsmere public library & community resource center, and replacement of various AC and HVAC systems. Funding for these projects will come from various sources, such as the one-cent local option sales tax, public buildings impact fees, and Federal Appropriations.
Lagoon Management
A newly added element, Lagoon Management, focuses on protecting and restoring the Indian River Lagoon through strategic infrastructure investments that improve water quality, reduce pollutant loads, and support long-term environmental resilience. This includes an impound infrastructure assessment and ecological restoration design for retrofit for $200,000 for fiscal years 2025/26 through 2029/30.
Law Enforcement and Corrections
Over the next five years, there will be various capital improvement projects in the law enforcement and corrections sector. These projects will include expansions and renovations of the Sheriff's facility, a security control panel upgrade, medical unit expansion, and overall improvements in the corrections system. The funding for these projects will be sourced from Law Enforcement impact fees and the one-cent local option sales tax. The total expenditure for these projects for fiscal years 2025/26 through 2029/30 is $26,315,617.
Parks and Recreation
Various parks and recreation projects are planned over the next five years. These projects aim to improve facilities such as the Victor Hart Sr. Complex (formerly known as Gifford Park), Fran B. Adams Regional Park, Hobart Park, 58th Avenue ballfields, County Fairgrounds, Dick Bird Regional Park, Wabasso Park, the Sandridge golf course clubhouse, the Jackie Robinson Training Complex, and the UF/IFAS Extension Office. The funding for these projects will be derived from the one-cent local option sales tax, golf club user fees, Windsor fund, boating improvement fund, and parks & recreation impact fees. The total amount of money allocated for these projects for fiscal years 2025/26 through 2029/30 is $54,024,308.
Sanitary Sewer and Potable Water
Sanitary sewer and potable water projects account for the largest share of CIP expenditure. These projects include the construction of multiple water mains (new and replacement), significant upgrades to the Glendale water reclamation facility, Hobart Landing sewer extensions, ICS network upgrades, Wabasso Island Utilities Improvement conversions, and various potable water well replacements and repairs. To fund these projects, various sources will be used, such as one-cent local option sales tax, user fees, grants, debt, and water & sewer impact fees. The total expenditure for these projects will be $232,945,439.
Solid Waste
Over the next five fiscal years, there are various solid waste capital improvement projects planned. These include the landfill gas expansion of Cell II of Segment 3 of the landfill, expansion of Cell IV of Segment 3 Class I landfill, closure of Segment 3 Cells 1 & 2, construction of a dedicated right turn lane along 74th Avenue SW, as well as an auto entry gate (into the landfill), completion of the HHW building, a new single-stream transfer building, and several upgrades at the landfill. The total cost of these improvements is $34,520,914 and will be funded through assessments, user fees, and the escrow account.
Stormwater Management
Capital improvement projects will be carried out to enhance the stormwater management systems in various areas. These include the Indian River Drive Stormwater Treatment Project, Egret Marsh, Rockridge One-Way Drain Valves, South Relief Canal Water Lettuce Harvesting, Floating Aquatic Mats, and a Fellsmere stormwater treatment area. Those projects will be funded through the one-cent local option sales tax. The total expenditure for this category from fiscal years 2025/26 through 2029/30 will be $33,882,936 and will be funded through grants and optional sales tax.
Transportation
In fiscal years 2025/26 through 2029/30, there are many plans for capital improvement projects related to roadway and sidewalk expansions. These projects include multiple road widening, sidewalk installations, turn lanes, intersection improvements, and paving projects across the county. The funding for capital improvements to county-maintained roads comes from traffic impact fees, gas tax revenue, and optional sales tax. Some expenditures are also financed by the State of Florida, and developer-funded construction. The total expenditure for transportation projects is $148,900,624.
The following comparison table illustrates the changes in funding from the previous year's CIP to the current one.
|
Category |
FY 2024/25-2028/29 |
FY 2025/26-2029/30 |
Difference $ |
Difference % |
|
Coastal Engineering |
$15,968,887 |
$6,797,025 |
-$9,171,862 |
-57% |
|
Conservation |
$14,348,595 |
$15,784,020 |
$1,435,425 |
10% |
|
Emergency Services |
$71,501,799 |
$74,996,694 |
$3,494,895 |
5% |
|
Facilities Management |
$29,261,785 |
$27,941,495 |
-$1,320,290 |
-5% |
|
Lagoon |
$0 |
$200,000 |
$200,000 |
n/a |
|
Law Enforcement |
$33,481,921 |
$26,315,617 |
-$7,166,304 |
-21% |
|
Recreation & Open Spaces |
$46,110,548 |
$54,024,308 |
$7,913,760 |
17% |
|
Sewer & Potable Water |
$122,047,983 |
$232,945,439 |
$110,897,456 |
91% |
|
Solid Waste |
$33,448,040 |
$34,520,914 |
$1,072,874 |
3% |
|
Stormwater |
$3,401,710 |
$33,882,936 |
$30,481,226 |
896% |
|
Transportation |
$145,076,576 |
$148,900,624 |
$3,824,048 |
3% |
|
Total |
$514,647,844 |
$656,309,072 |
$141,661,228 |
28% |
Consistency with the Comprehensive Plan
Comprehensive plan amendment requests are reviewed for consistency with all applicable policies of the comprehensive plan. As per section 800.07(1) of the county code, the comprehensive plan may be amended only in such a way as to preserve the internal consistency of the plan.
The comprehensive plan consists of goals, objectives, and policies that are crucial for directing the community's development. Policies are statements that outline the actions the county will take to achieve these goals. They serve as the basis for all decisions related to land development in the county. Although all policies are important, some are more relevant than others when reviewing amendment requests. In this case, the following policy is particularly relevant:
• Future Land Use Element Policy 14.3
When evaluating a plan amendment request for consistency with the County's Comprehensive Plan, the most crucial policy to consider is future land use element policy 14.3. This policy specifies four criteria that must be met to approve a comprehensive plan amendment request. At least one of these four criteria must be satisfied to proceed with the request.
• a mistake in the approved plan;
• an oversight in the approved plan;
• a substantial change in circumstances affecting the subject property; or
• a swap or a reconfiguration of land uses at separate sites.
In this case, the proposed amendment to the CIE meets the third criterion of policy 14.3 of the future land use element. Since the CIE was last revised, some capital improvements have been completed, others have been added, revenue projections have changed, and priorities have been modified. Those circumstances warrant the amendment.
• Capital Improvements Element Policies 1.1, 1.2, 1.3, 1.5, 1.10, and 1.11
Capital improvements element policies 1.1, 1.2, 1.3, 1.5, 1.10 and 1.11 require the County to maintain and implement a capital improvements program which is evaluated and updated periodically. Those policies also describe how the county will evaluate and prioritize capital improvements. By updating the capital improvements program in accordance with those requirements, the proposed amendment is consistent with those policies.
• Capital Improvements Element Policy 1.9
Capital improvements element policy 1.9 states that the county shall include all capital expenditures in excess of $100,000 in its schedule of improvements. Since the proposed CIE update amendment identifies all capital expenditures in excess of $100,000, the proposed amendment is consistent with capital improvements element policy 1.9.
While the referenced policies are particularly applicable to this request, other comprehensive plan policies and objectives also have relevance. For that reason, staff evaluated the proposed amendment for consistency with all applicable plan policies and objectives. Based upon that analysis, staff determined that the proposed amendment is consistent with the comprehensive plan.
BUDGETARY IMPACT
A budget amendment will be completed to allocate approved funding via specified sources in the approved plan.
PREVIOUS BOARD ACTIONS
Amendment of the Comprehensive Plan’s Capital Improvements Element is a legislative matter and is only required to be reviewed and approved by the Board of County Commissioners at one (1) public hearing, which was last modified and approved on February 25, 2025.
STAFF RECOMMENDATION
Based on the analysis conducted, staff recommends that the Board of County Commissioners approve the update to the 5-Year Capital Improvements Program for the period FY 2025/26 through 2029/30 and supporting data and analysis of the Capital Improvements Element (CIE) of the Comprehensive Plan by adopting the attached ordinance.