Indian River County  
Administration Complex  
1801 27th Street  
Indian River County, Florida  
Vero Beach, Florida 32960  
indianriver.gov  
Meeting Minutes - Final  
Board of County Commissioners  
Joseph Flescher, District 2, Chairman  
Deryl Loar, District 4, Vice Chairman  
Susan Adams, District 1  
Joseph H. Earman, District 3  
Laura Moss, District 5  
John A. Titkanich, Jr., County Administrator  
Jennifer W. Shuler, County Attorney  
Ryan L. Butler, Clerk of the Circuit Court and Comptroller  
Tuesday, July 1, 2025  
9:00 AM  
Commission Chambers  
1. CALL TO ORDER  
5 -  
Present:  
Chairman Joseph Flescher  
Vice Chairman Deryl Loar  
Commissioner Susan Adams  
Commissioner Joe Earman  
Commissioner Laura Moss  
2.A. A MOMENT OF SILENT REFLECTION FOR FIRST RESPONDERS AND MEMBERS OF  
THE ARMED FORCES  
2.B. INVOCATION  
Pastor Randy Fullerton, Glendale Baptist Church  
3. PLEDGE OF ALLEGIANCE  
Commissioner Deryl Loar  
4. ADDITIONS/DELETIONS TO THE AGENDA / EMERGENCY ITEMS  
ADDED: Item 5.C. Florida House of Representatives Robert Brackett  
DELETED: Item 9.S.  
MOVED: Item 9.T. to be heard under Item 16.B.4.  
A motion was made by Commissioner Adams, seconded by Commissioner Moss,  
to approve the Agenda as amended. The motion carried by the following vote:  
5 -  
Aye:  
Chairman Flescher, Vice Chairman Loar, Commissioner Adams, Commissioner  
Earman, and Commissioner Moss  
5. PROCLAMATIONS and PRESENTATIONS  
25-0686  
5.A.  
Presentation of Proclamation Celebrating the 100th Anniversary of the  
Indian River County Mosquito Control District  
Recommended Action:  
Recommend read & present.  
Attachments: Mosquito Control District Proclamation  
Matt Erpenbeck expressed his gratitude to the Board for presenting this Proclamation  
on behalf of the Indian River Mosquito Control District. He stated the Mosquito  
Control District took great pride in its 100 years of service and looked forward to  
continuing its work for many more years to come.  
Read and presented by Chairman Flescher  
25-0664  
5.B.  
Proclamation Declaring July 19-27, 2025 Treasure Coast Waterway  
Cleanup Week In Indian River County, Florida  
Recommended Action:  
Recommend Read and Present.  
Attachments: Proclamation  
April Price, Executive Director of the Marine Industries Association of Florida, Inc.,  
expressed gratitude to the Board for declaring July 19-27, 2025, as Treasure Coast  
Waterway Cleanup Week for the 18th consecutive year. She noted a significant  
reduction in trash levels within the waterways, mentioning that the program's early  
years recorded over 10 tons of waste, which had now decreased to an average of  
three tons annually. This positive change was attributed to increased volunteer  
participation and efforts to foster personal responsibility among the community.  
Read and presented by Commissioner Earman  
Florida House of Representatives Robert Brackett  
5.C.  
25-0713  
Florida House Representative Robert Brackett provided an update on the outcome of  
the legislative session in Tallahassee. He reported a budget reduction of over $3.5  
billion and an increase in the state’s rainy-day fund, emphasizing the philosophy of  
returning financial resources to the community. Mr. Brackett also highlighted the  
elimination of the business rent tax, projecting a $2.5 billion saving for local  
businesses, and detailed appropriations benefiting Indian River County, including  
funds for transportation services and mental health initiatives. He acknowledged  
Kathy Copeland, the County’s Legislative Affairs Director, for her involvement in  
securing these appropriations.  
Chairman Flescher thanked Mr. Brackett for his contributions to the County.  
No Action Taken or Required  
6. APPROVAL OF MINUTES  
25-0683  
Regular Meeting of May 20, 2025  
6.A.  
Recommended Action:  
Approve  
Attachments: 05202025 BCC Draft  
A motion was made by Commissioner Adams, seconded by Vice Chairman Loar,  
to approve the Regular Meeting Minutes of May 20, 2025, as written. The motion  
carried by the following vote:  
5 -  
Aye:  
Chairman Flescher, Vice Chairman Loar, Commissioner Adams, Commissioner  
Earman, and Commissioner Moss  
7. INFORMATION ITEMS FROM STAFF OR COMMISSIONERS NOT REQUIRING BOARD  
ACTION  
25-0666  
Event Calendar  
7.A.  
Recommended Action:  
No action required  
Attachments: July-August Event Calendar  
No Action Taken or Required  
25-0687  
Florida Public Service Commission Final Order No. PSC-2025-0222-S-EI  
7.B.  
7.C.  
Recommended Action:  
Informational Only  
No Action Taken or Required  
25-0693  
Florida Public Service Commission By Order No. PSC-2025-0176-PAA-EI  
Recommended Action:  
Informational Only  
No Action Taken or Required  
8. PUBLIC COMMENT: AGENDA-RELATED MATTERS (EXCEPT FOR PUBLIC  
HEARINGS)  
9. CONSENT AGENDA  
A motion was made by Commissioner Earman, seconded by Vice Chairman Loar,  
to approve the Consent Agenda as amended, deleting Item 9.S. and moving Item  
9.T. to be heard under Item 16.B.4. The motion carried by the following vote:  
5 -  
Aye:  
Chairman Flescher, Vice Chairman Loar, Commissioner Adams, Commissioner  
Earman, and Commissioner Moss  
25-0594  
9.A.  
9.B.  
9.C.  
9.D.  
9.E.  
Approval of Checks and Electronic Payments May 10, 2025 to May 16,  
2025  
Recommended Action:  
Approve the list of checks and electronic payments for the time period of May 10,  
2025 to May 16, 2025  
Attachments: Comptroller Division Staff Report  
Approved  
25-0612  
Approval of Checks and Electronic Payments May 17, 2025 to May 23,  
2025  
Recommended Action:  
Approve the list of checks and electronic payments for the time period of May 17,  
2025 to May 23, 2025  
Attachments: Comptroller Division Staff Report  
Approved  
25-0622  
Approval of Checks and Electronic Payments May 24, 2025 to May 30,  
2025  
Recommended Action:  
Approve the list of checks and electronic payments issued for the time period of May  
24, 2025 to May 30, 2025  
Attachments: Comptroller Division Staff Report  
Approved  
25-0654  
Approval of Checks and Electronic Payments May 31, 2025 to June 6,  
2025  
Recommended Action:  
Approve the list of checks and electronic payments for the time period of May 31,  
2025 to June 6, 2025  
Attachments: Comptroller Division Staff Report  
Approved  
25-0616  
First Extension and Amendment to Agreement for Mental Health  
Coordinator Services (RFP 2022060)  
Recommended Action:  
Staff recommends the Board approve the first extension and amendment to the  
agreement and authorize the Chairman to execute it, after review and approval by the  
County attorney as to form and legal sufficiency.  
Attachments: First Extension and Amendment - Final  
Approved staff's recommendation  
25-0655  
9.F.  
Award of Annual Bid 2025036 for American Sign Language Interpretation  
Services  
Recommended Action:  
Staff recommends the Board award Bid 2025036 to SignTalk, LLC and Trusted  
Translations, Inc., approve the sample agreement, and authorize the Chairman to  
execute the agreement after approval by the County Attorney as to form and legal  
sufficiency. Staff also recommends the Board authorize the Procurement Manager to  
renew this bid at the same rates for two (2) additional one (1) year periods subject to  
satisfactory performance, vendor acceptance, and the determination that renewal of  
this annual bid is in the best interest of the County.  
Attachments: Sample Agreement  
Approved staff's recommendation  
25-0657  
9.G.  
First Extension to Agreement for Annual Maintenance at Spoonbill Marsh  
(RFP 2022071)  
Recommended Action:  
Staff recommends the Board of County Commissioners approve the first extension to  
the agreement, and authorize the Chairman to execute it, after review and approval by  
the County Attorney as to form and legal sufficiency.  
Attachments: Spoonbill Maintenance First Extension  
Approved staff's recommendation  
25-0669  
Award of Annual Bid 2025040 for Mowing at Fire Rescue Stations  
9.H.  
Recommended Action:  
Staff recommends the Board award Bid 2025040 2nd Mile M.C LLC and authorize  
the Procurement Division to issue blanket purchase orders against the contract. Staff  
also recommends the Board authorize the Procurement Manager to renew this bid at  
the same rates for two (2) additional one (1) year periods subject to satisfactory  
performance, vendor acceptance, and the determination that renewal of this annual  
bid is in the best interest of the County.  
Attachments: 1-antihuman traffic  
Approved staff's recommendation  
25-0675  
Award of Annual Bid 2025042 for Sanitary Sewer Services  
9.I.  
Recommended Action:  
Staff recommends the Board waive the irregularity in the Meeks Plumbing bid and  
award Bid 2025042 to both Envirowaste Services Group, Inc. and Meeks Plumbing,  
Inc. Approve the sample agreement and authorize the Chairman to execute it after  
approval by the County Attorney as to form and legal sufficiency, and receipt of the  
required insurance. Staff also recommends the Board authorize the Procurement  
Manager to renew this bid at the same rates for two (2) additional one (1) year  
periods subject to satisfactory performance, vendor acceptance, and the  
determination that renewal of this annual bid is in the best interest of the County.  
Attachments: Agreement  
Approved staff's recommendation  
25-0677  
9.J.  
Designation of Excess Equipment as Surplus and Authorization for  
Disposal  
Recommended Action:  
Staff recommends the Board declare the items on the Excess List for 070125 as  
surplus, and authorize their disposition, as indicated.  
Attachments: Excess List for 070125  
Approved staff's recommendation  
25-0678  
Rejection of RFP 2025048 for Concession Services  
9.K.  
9.L.  
Recommended Action:  
Staff recommends the Board reject RFP 2025048.  
Approved staff's recommendation  
25-0662  
First Amendment to 2023 Interlocal Agreement - Proposed Medical  
Examiner Facility  
Recommended Action:  
Staff recommends the Board approve the First Amendment to 2023 Interlocal  
Agreement - Proposed Medical Examiner Facility and authorizes the Chairman to sign  
the amendment.  
Attachments: First Amendment  
Approved staff's recommendation  
25-0661  
Hobart Park Improvements (Utilities)  
9.M.  
Recommended Action:  
Staff recommends approval of the Bill of Sale of Utility Facilities and requests the  
Board authorize the Chairman to execute same for recordation in the Public Records  
of Indian River County, Florida.  
Attachments: Bill of Sale - Hobart Park Improvements - UCP 3555  
Approved staff's recommendation  
25-0673  
Approval of the Retiree Blue Medicare Advantage Renewal  
9.N.  
Recommended Action:  
Staff recommends and respectfully requests that the Board approve the renewal of the  
Blue Medicare Advanced Platinum PPO plan effective October 1, 2025 through  
September 30, 2026 and authorize the Chairman to execute the renewal agreement.  
Attachments: IRC BCBS Blue Medicare Renewal_10-1-2025  
2025 BlueMedicare Advanced_Platinum PPO_DHV #90000  
2025 BlueMedicare Master Agreement #90000  
Approved staff's recommendation  
25-0647  
9.O.  
Rapid Land and Hydrographic Beach Profile Survey for Erosion Event –  
Morgan and Eklund WO#8  
Recommended Action:  
Staff recommends BOCC approval of the attached Work Order Agreement. Staff  
also recommends the BOCC authorize the Chairman to sign the Work Order on  
behalf of the County.  
Attachments: Work Order Agreement M&E #8  
Approved staff's recommendation  
25-0635  
9.P.  
Release of Retainage and Approval of Change Order No. 1 for Bid No.  
2024026 for the Tracking Station Dune Crossover Repairs  
Recommended Action:  
Staff respectfully request the release of retainage in the amount of $9,863.08 to Island  
Harbor Custom Builders, and the approval of Change Order No.1 for Bid No.  
2024026 to reduce the contract amount, which will release any further obligations of  
the County from the Contractor.  
Attachments: Application for Payment  
Tracking Station Change Order  
Tracking Station Final Cert of Work  
CertOfCompletion - Middle  
CertOfCompletion - North  
CertOfCompletion - South  
Approved staff's recommendation  
25-0665  
9.Q.  
Release of Retainage for Bid 2024051 for the Fran Adams (North County  
Park) Restroom/Concession Remodel  
Attachments: Work Change Directive  
Certificate of Completion  
Final Cert of Work  
Retainage Invoice 2189  
Approved staff's recommendation  
25-0698  
9.R.  
List of Errors, Insolvencies, Double Assessments and Discounts for the  
2024 Tax Roll  
Recommended Action:  
Accept the report  
Attachments: 2024 Tax Roll Recapitulation  
Accepted  
25-0670  
9.S.  
Amendment 1 to Agreement RFQ 2024039 Integrated Water Master Plan  
with HDR Engineering, Inc., for Wabasso Causeway Bridge Reuse Main  
Visual Assessment, IRCDUS Project ID: 31.24.509  
Recommended Action:  
Staff recommends that the Indian River County Board of County Commissioners  
approve Amendment 1 to Agreement RFQ 2024039 Integrated Water Master Plan  
with HDR Engineering, Inc. for Wabasso Causeway Bridge Reuse Main Visual  
Assessment, IRCDUS Project ID: 31.24.509 for an additional budget not-to-exceed  
$293,128.00 and authorize the Chair to execute it after review and approval by the  
County Attorney as to form and legal sufficiency. So long as there are no changes in  
the dollar amount under the agreement and upon adequate completion of the services  
set forth in the agreement, staff is directed to make final payment to HDR Engineering,  
Inc.  
Attachments: HDR Proposal  
Deleted  
25-0640  
9.T.  
Final Pay to Geosyntec for Work Order No. 1, Amendment 1, 2 & 3 -  
Segment 3 Cell 3 Liner Construction, Indian River County Landfill Facility  
Recommended Action:  
Solid Waste Disposal District staff recommends that its Board approve Geosyntec’s  
final invoice amount of $12,418.18.  
Attachments: Geosyntec Completion Report  
Geosyntec Final Invoice  
Moved to Item 16.B.4.  
10. CONSTITUTIONAL OFFICERS and GOVERNMENTAL AGENCIES  
25-0685  
Request for Authorization to Trade-In Cash Management Devices  
10.A.  
Recommended Action:  
It is recommended that the Board of County Commissioners allow for the trade in of  
the devices for $3,000 per device, offsetting the purchase price of the new devices.  
Attachments: Tax Collector's Memo of 20250617  
Asset disposition forms  
Brad Newman, Finance Director for the Indian River County Tax Collector's Office,  
approached the Board to request authorization to trade-in three existing cash  
management devices. These machines dispensed the opening cash till for all the Tax  
Collector Customer Service Representatives. At the end of the day, the  
Representatives deposited the cash till back into the machines, which provided a clear  
audit trail of all cash transactions that occurred throughout the day, ensuring that no  
money was missing.  
Chairman Flescher expressed his satisfaction with the decision to exchange items to  
get the best value. He praised the Tax Collector's Office for its resourcefulness in  
acquiring materials for the services provided. He stated this situation was another  
example of efficiency and cost-effectiveness for the taxpayer.  
A motion was made by Vice Chairman Loar, seconded by Commissioner Adams,  
to approve staff's recommendation. The motion carried by the following vote:  
5 -  
Aye:  
Chairman Flescher, Vice Chairman Loar, Commissioner Adams, Commissioner  
Earman, and Commissioner Moss  
11. PUBLIC ITEMS  
A. PUBLIC HEARINGS  
PROOF OF PUBLICATION FOR THESE HEARINGS ARE ON FILE IN THE  
OFFICE OF THE CLERK TO THE BOARD.  
25-0636  
11.A.1.  
Public Hearing to Consider Master Capital Project and Service  
Assessment Ordinance (Legislative)  
Recommended Action:  
Staff recommends that the Board conduct a public hearing, take comments from  
interested persons and adopt the Master Capital Project and Service Assessment  
Ordinance.  
Attachments: Master Service Assessment Ordinance  
IRC Business Impact Estimate  
Affidavit of Publication  
County Attorney Jennifer Shuler discussed the use of non-ad valorem special  
assessments by local governments in Indian River County to enhance services and  
support capital projects that benefited specific properties, including road paving and  
stormwater improvements. She introduced a new Ordinance designed to streamline  
and clarify the process for these assessments, ensuring compliance with Florida  
Statutes and due process for property owners. Ms. Shuler emphasized that the  
Ordinance aimed to formalize existing procedures rather than establish new  
assessments.  
The Chairman opened the public hearing.  
Allison Giordano, former President of the Waters Edge Phase 2 Homeowners  
Association, criticized the County for its poor communication and lack of  
transparency regarding an assessment issue that affected residents. She expressed  
frustration over the ongoing delays and the County's failure to fulfill its commitments,  
attributing the problems to high turnover among officials. Ms. Giordano pointed out  
that the canal enhancements had benefited the wider public, making it unfair to impose  
costs solely on Waters Edge homeowners. She urged the County to reevaluate the  
situation, comply with notification laws, and advocated for fairness in the assessment  
process.  
Leticia Wood, a resident of Waters Edge and member of the Hispanic Conservatives  
of Indian River County, voiced her concerns about the culvert project in a letter that  
was read by Ms. Giordano. She highlighted the lack of transparency and that it was  
unfair for the predominantly retired community to shoulder the financial burden, as the  
canal affected homes outside their neighborhood. Ms. Wood pledged to advocate for  
Waters Edge residents and ensure that any unethical practices by the Board of  
Commissioners were brought to light.  
There being no other speakers, the Chairman closed the public hearing.  
Chairman Flescher requested clarification from County Attorney Shuler regarding  
changes to the Ordinance. Attorney Shuler emphasized that the focus was on  
improving the special assessment process to enhance transparency and community  
engagement. She explained that adopting the new Master Ordinance would repeal  
previous provisions and introduce a new framework for special assessments, including  
the Waters Edge project. This would have allowed the community to express their  
views, and the Property Manager to have been informed of this recommendation to  
proceed with Waters Edge under the new Ordinance.  
A motion was made by Commissioner Adams, seconded by Chairman Flescher,  
to approve staff's recommendation and Ordinance 2025-010, repealing Chapter  
206 of the Indian River County Code of Ordinances entitled “Special  
Assessments” and adopting a new Master Capital and Service Assessment  
Ordinance; authorizing the imposition and collection of Special Assessments  
against property within Indian River County; providing certain definitions and  
defining the terms "Assessment," "Service Assessment," and "Capital  
Assessment"; providing for the creation of assessment areas; establishing the  
procedures for imposing Capital and Service Assessments; establishing  
procedures for notice and adoption of Assessment Rolls; providing that  
assessments constitute a lien on assessed property upon adoption of the  
Assessment Roll; providing that the lien for an assessment collected pursuant to  
Sections 197.3632 and 197.3635, Florida Statutes, upon perfection shall attach to  
the property on the prior January 1, the lien date for Ad Valorem taxes; providing  
that a perfected lien shall be equal in rank and dignity with the liens of all State,  
County, District, or Municipal taxes and assessments and superior in dignity to all  
other prior liens, mortgages, titles, and claims; authorizing exemptions;  
providing procedures for collection of assessments; providing a mechanism for  
the imposition of assessments on government property; declaring the provisions  
of this Ordinance to be supplemental, additional, and an alternative method;  
providing for applicability and severability; providing for conflicts and  
codification; and providing an effective date. The motion carried by the following  
vote:  
5 -  
Aye:  
Chairman Flescher, Vice Chairman Loar, Commissioner Adams, Commissioner  
Earman, and Commissioner Moss  
25-0668  
11.A.2.  
Indian River Land Trust, Inc.’s Request to Amend the County’s  
Comprehensive Plan Future Land Use Map from R, Rural Residential  
to  
C-3, Conservation-3 AND Rezone Approximately ±36 Acres  
from  
A-1, Agricultural District to CON-3, Conservation District (2025-05-0015)  
Recommended Action:  
Based on the analysis, staff and the Planning and Zoning Commission recommend that  
the Board of County Commissioners approve the requests to amend the  
comprehensive plan future land use map from R, Rural Residential to the C-3,  
Conservation-3 future land use designation, and to rezone the subject property from  
the A-1, Agricultural District to the CON-3, Conservation zoning district, by adopting  
the attached ordinances.  
Attachments: FLU MAP  
Floodzone Map  
Application  
Rezoning & Future Land Use Ordinance  
Chairman Flescher introduced the parties to the proceeding as Indian River County and  
Indian River County Land Trust (IRLT) (Applicant). As requested by the Chairman,  
each Commissioner disclosed ex parte communications, site visits, or independent  
investigations. The Commissioners also affirmed that they have an open mind and can  
base their decisions on the evidence presented and the applicable law. The Chairman  
opened the public hearing.  
The Deputy Clerk administered the Oath to all persons who wished to speak at the  
hearing.  
The Chairman opened the public hearing.  
Patrick Murphy, Chief of Long-Range Planning, presented a request from the IRLT  
to amend the County’s Comprehensive Plan by changing the Future Land Use Map  
designation from Rural Residential (R) to Conservation-3 (C-3) and rezone  
approximately 36 acres from Agricultural District (A-1) to Conservation Zoning  
District (CON-3). This area was located south of Sebastian Highlands and was  
intended for public conservation. The IRLT was seeking reimbursement from the  
Florida Communities of Trust, which required the land to be zoned for public  
conservation. The project aimed to develop a 0.6-mile nature trail, a wildlife  
observation platform, a picnic pavilion, an interpretive kiosk, and seating benches for  
public enjoyment. Staff had determined that the proposed Land Use Map  
amendment was consistent with the Comprehensive Plan, was compatible with all  
surrounding land uses, and would cause no adverse impacts on the provision of Public  
Services.  
Mr. Murphy responded to Commissioner Adams, stating that they currently access  
the property from the south via an easement. However, he mentioned that the IRLT  
was considering purchasing additional properties to create access from the southeast.  
This parcel would be linked to other parcels they planned to acquire, forming a larger  
walkway through the area.  
Ken Grudens, Executive Director of the IRLT, highlighted the project that was part of  
the St. Sebastian River Greenway Plan adopted by the County in 2006. This initiative  
aimed to create a trail system along the St. Sebastian River, connecting Route 510 to  
Route 512 while focusing on land protection and collaboration with partners such as  
the Marine Resources Council and the City of Sebastian. The initiative included plans  
for a network of interconnected trails with three potential trailheads; the main one  
would be located at the Marine Resources Council's property. The emphasis was on  
developing trails that connected properties without facilitating vehicle access.  
IRLT's Acquisition Manager Rose West presented the original concept map of the  
envisioned trail to the Board. The proposed greenway system was a five-mile route  
that started at Sebastian Inlet and extended south along the south prong of the St.  
Sebastian River, passing by the State Park.  
Mr. Murphy noted that the phone calls from Sebastian Highlands residents all  
expressed support, relieved that no further development would affect their subdivision  
and pleased that the area would remain publicly owned.  
There being no additional speakers; the Chairman closed the public hearing.  
A motion was made by Commissioner Adams, seconded by Chairman Flescher,  
to approve staff's recommendation and Ordinance 2025-011, An Ordinance of  
Indian river county, Florida, amending the Future Land Use Ordinance and the  
accompanying Future Land Use map and amending the Zoning Ordinance and  
the accompanying Zoning Map for approximately +/- 35.73 acres located  
approximately 1,300 feet North of 85th Street, in the vicinity South of Concha  
Drive and South of Joy Haven Drive, and approximately 1.6 miles West of 66th  
Avenue; from R, Rural Residential, to the C-3, Conservation-3 designation; and  
from A-1, Agricultural District, to Con-3, Conservation Zoning District; and  
providing codification, severability, and effective date.. The motion carried by  
the following vote:  
5 -  
Aye:  
Chairman Flescher, Vice Chairman Loar, Commissioner Adams, Commissioner  
Earman, and Commissioner Moss  
The Chairman called a recess at 10:00 a.m., and reconvened the meeting at 10:11  
a.m., with all members present.  
25-0676  
11.A.3.  
Appeal of Planning and Zoning Commission's Decision to Deny a  
Conceptual Planned Development (PD) Plan and PD Rezoning, and  
Concurrent Preliminary PD Plan for a Project to be Known as Floresta  
Gardens PD [PD-24-07-05 / 2001020054 - 96566] (Quasi-Judicial)  
Recommended Action:  
Staff recommends that the BCC grant approval of the PD rezoning request and the  
concurrent conceptual PD plan and preliminary PD plan for Floresta Gardens PD,  
with conditions. A more detailed breakdown of the staff recommendation, complete  
with conditions of approval, can be found in the PZC staff report dated May 15,  
2025.  
Attachments: Appeal Request Application  
May 15, 2025 Planning & Zoning Commission Staff Report  
Approved May 15, 2025 Planning & Zoning Commission Meeting  
Minutes  
Chairman Flescher introduced the parties to the proceeding as Indian River County  
and K. Hovnanian Southeast Florida Division, LLC (Applicant). As requested by the  
Chairman, each Commissioner disclosed ex parte communications, site visits, or  
independent investigations. The Commissioners also affirmed that they have an open  
mind and can base their decisions on the evidence presented and the applicable law.  
The Chairman opened the public hearing.  
The Deputy Clerk administered the Oath to all persons who wished to speak at the  
hearing.  
Ryan Sweeney, Assistant Planning and Development Services Director, presented an  
appeal of the Planning and Zoning Commission’s decision to deny a conceptual  
Planned Development (PD) plan, preliminary and PD rezoning, and a concurrent PD  
plan for a project known as Floresta Gardens PD.  
Mr. Sweeney used a PowerPoint presentation to explain the project's background  
and the appeal process. He stated that on May 22, 2025, the Planning and Zoning  
Commission (PZC) voted to deny the applicant’s request for rezoning, as well as  
approval of the conceptual plan and preliminary plan. He mentioned that the applicant  
argued the denial lacked solid evidence and that the staff's recommendation for  
approval should be followed.  
Mr. Sweeney also noted that at their meeting on May 22, 2025, the PZC voted 4-3  
against rezoning about 18.08 acres from Agricultural-1 (A-1) to Planned  
Development (PD). According to Sections 902.12(4)(d) and (e), the Board should  
hear an appeal of the PZC’s decision to deny the rezoning. This hearing would be  
heard de novo, meaning the BCC would consider all presentations and testimony as if  
it were hearing the matter for the first time.  
Commissioner Moss sought clarification on the public benefit of the project. Mr.  
Sweeney explained that the focus was on the south side of the property, which  
featured the best vegetation and created a natural buffer. This area also bordered a  
previously approved subdivision. The open space requirement for the underlying land  
use (L1) was 40%, and the project exceeded this with an open space calculation of  
approximately 58%, which equated to 10 out of the 18 acres. Mr. Sweeney  
discussed the street improvement for Commissioner Moss, highlighting that it  
extended 45 feet from the end of the Hampton Parks improvements to 45 feet east of  
the project driveway. An additional 200 feet further east led to a school driveway.  
In response to Commissioner Earman, Mr. Sweeney clarified the difference between  
the Planned Development (PD) rezoning and the RS-3 zoning project. He indicated  
that the applicant could likely rezone to RS-3 through a conventional rezoning process  
and then proceed with a standard subdivision. The minimum lot width for RS-3 was  
80 feet, resulting in fewer lots. However, this option would not require significant  
buffering on three of the four sides of the project. Commissioner Earman expressed  
concerns about the traffic impact of the Floresta Gardens project, which proposed 44  
single-family homes. Mr. Sweeney noted that these 44 homes would typically  
generate around 415 trips, exceeding the threshold that necessitated a traffic study.  
However, the study concluded that there was no need for off-site improvements, such  
as the addition of turn lanes or modifications. Commissioner Earman finished by  
questioning why the County would approve the additional traffic from developments  
onto two-lane roads.  
Vice Chairman Loar stated that when the Board reviewed this item individually, the  
applicant followed the guidelines set forth in the Comprehensive Plan within the Urban  
Service Boundary (USB) and the developer had satisfied the established  
requirements. He felt there needed to be a discussion on the definition of “public  
benefit”. He concluded, stating that the decision to approve the project should be  
based on compliance with existing regulations, regardless of any personal opinions or  
influences concerning neighboring areas.  
Commissioner Adams emphasized the need for the Board to align on the definition of  
public benefit, noting that it can vary between a general benefit to the public and one  
that was more localized to a specific project. She also highlighted the importance of  
discussing how green space and open space are defined and measured, advocating  
for consistency in these metrics. Commissioner Adams inquired about what  
constituted substantial, competent evidence for decision-making, with County  
Attorney Jennifer Shuler explaining that decisions should be based on factual evidence  
rather than subjective opinions. She urged Board members to express concerns based  
on facts and relevant policies, rather than personal dislikes. Attorney Shuler read the  
Purpose and Intent for this PD to the Board.  
The Board and staff engaged in a lengthy discussion about the project's complexities.  
The discussion emphasized the need to strike a balance between developmental  
flexibility and community preservation. Staff and Commissioners debated the best  
ways to serve community interests. Attorney Shuler wanted to ensure that the Board  
understood this hearing was a de novo proceeding, meaning that is was a fresh review  
of the project.  
Attorney Bruce Barkett, representing the Applicant, emphasized the project's quality  
and collaboration with staff and the community, aiming to create a beneficial  
development for Indian River County. He noted that the proposed project added only  
about seven more homes compared to what was typically allowed under RS-6 or  
RS-3 zoning. Mr. Barkett highlighted that the PD process enforced stricter standards,  
allowing staff to minimize impacts through site design and public benefits. He pointed  
out that the proposal's density of two and a half units per acre was lower than the  
maximum permitted density. While the Planning and Zoning comments were relevant,  
they were not deemed strong evidence against the project. He praised the staff's  
thorough recommendations and addressed concerns about traffic, stating that no  
substantial objections were raised during community meetings. Mr. Barkett reinforced  
the idea that the denial was based solely on traffic concerns without supporting  
evidence. He also mentioned the applicant would agree to the 10-foot setback.  
Angie Vitter, Project Manager at MBV Engineering, Inc., responded to  
Commissioner Earman regarding roadway improvements on 8th Street. The plan  
included adding a Type F curb and gutter to widen the path by two feet on either side,  
enhancing safety by preventing direct drop-off into the canal. A midblock crossing  
with a lighted beacon to help children from Floresta Gardens cross safely. The  
improvements extended to Glendale Elementary School, featuring restriped school  
zones and additional signage. Ms. Vitter stated that the team proposed a lower speed  
limit to enhance safety. Ms. Vitter mentioned a dip in the road indicating potential  
culvert failure, which the applicant agreed to replace as part of the project. Ms. Vitter  
discussed the development where the homes were strategically positioned away from  
local roads to enhance the surrounding environment, with a park on one side and a  
pond on the other. She addressed concerns regarding smaller lot sizes, emphasizing  
that buyers would ultimately make their own choices. The project not only met but  
exceeded open space requirements by preserving 25% of the native plant community  
and enhancements to 8th Street contributed to a more attractive streetscape.  
Attorney Shuler clarified that Mr. Barkett’s reference to competent and substantial  
evidence warranted a deeper explanation of the PD process. This procedural  
framework was an optional zoning mechanism that permitted flexibility in land  
development. She noted that under the relevant code, the Board of County  
Commissioners possessed the discretion to approve waivers for various land  
development regulations. Furthermore, the Board could impose additional conditions  
or restrictions on approvals for PD projects, even if those conditions were not  
explicitly enumerated in the County's Land Development Regulations. Attorney Shuler  
emphasized the importance of the Board articulating specific public benefits it sought,  
as constructive dialogue was critical in this context. She also noted that staff were  
actively involved in facilitating these negotiations to ensure all stakeholders gained a  
mutual understanding of the process and its implications.  
The Chairman opened the floor for public comment. There being no speakers, the  
Chairman closed the hearing.  
A motion was made by Vice Chairman Loar, seconded by Commissioner Adams, to  
approve staff’s recommendation with the 10-foot setbacks on 70-foot lots.  
Commissioner Adams sought clarification on the Commissioners' expectations.  
Commissioner Earman raised concerns about increased traffic and called for a  
comprehensive traffic study for both current and future subdivisions, highlighting  
community fears about traffic growth. Commissioner Moss expressed that she did not  
perceive sufficient public benefit from the proposals, indicating that, while perspectives  
may vary, she found the public benefit to be lacking.  
Commissioner Adams emphasized the need for a collaborative conversation to clarify  
what constituted a ‘public benefit’ and to address traffic concerns effectively. She  
affirmed that the project in question complied with existing regulations. If those  
regulations were deemed inadequate, it was the Board’s responsibility to update them  
rather than dismiss projects that met current standards.  
Vice Chairman Loar emphasized that this was a single project. He noted that there  
had been months of studies conducted on the USB, which included a thorough traffic  
analysis. He pointed out that this discussion centered on this project, which aligned  
with the criteria established by the current rules and policies, and to deviate from these  
guidelines would contradict the recommendations made by staff.  
Chairman Flescher discussed concerns about how personal feelings could affect  
decision-making and highlighted the importance of basing decisions on available  
information. He recognized that judging public benefit was complex and involved  
more than just physical features such as parks and recreational spaces. In this case,  
the proposed public benefit included a better road and some open space that might  
not be accessible. He expressed doubt about the effectiveness of measuring public  
benefit, pointing out the lack of tools to quantify it. Chairman Flescher noted that while  
the plan could have led to more traffic, the increased setback improved the area’s  
appearance. Ultimately, he was cautious about the claimed public benefit, stressing  
that his concerns were based on facts rather than personal feelings.  
Vice Chairman Loar presented one final argument by stating that the Board had  
discussed the public benefits associated with the development. He added that  
although he was unsure if it would strengthen the case, he believed that with 44 homes  
each contributing a minimum of a $10,000 impact fee, along with ongoing property  
taxes on homes valued between $600,000 and $800,000, the expected property tax  
revenue could be approximately $8,000. Loar noted that based on past experience,  
neighborhoods with homes in this price range typically exhibit a lower volume of  
service calls. He concluded that if this lower volume of service calls could be  
considered a public benefit, it served as a strong example of how growth could  
effectively pay for itself.  
A motion was made by Vice Chairman Loar, seconded by Commissioner Adams,  
to approve staff's recommendation with the 10-foot setback on the 70-foot lots.  
The motion failed by the following vote:  
2 - Vice Chairman Loar, and Commissioner Adams  
Aye:  
Nay:  
3 - Chairman Flescher, Commissioner Earman, and Commissioner Moss  
B. PUBLIC NOTICE ITEMS  
12. COUNTY ADMINISTRATOR MATTERS  
13. DEPARTMENTAL MATTERS  
A. Building and Facilities Services  
B. Community Services  
C. Emergency Services  
D. Human Resources  
E. Information Technology  
F. Natural Resources  
G. Office of Management and Budget  
The Chairman called for a recess at 11:43 a.m. and reconvened at 11:55 a.m. with all  
members present.  
25-0658  
Changes to Administrative Policy Manual Section 400 (Expenses)  
13.G.1.  
Recommended Action:  
Staff recommends that the Board approve the revisions to the Travel Policy  
(AM-401.1) and the addition of the Purchase of Food Items policy (AM-403.1).  
Attachments: Revision to AM 401.1 Travel Policy  
New AM 403.1 Purchase of Food Items  
Procurement Manager Jennifer Hyde reported on collaborative efforts to improve the  
organization's procurement practices, with key updates to the Purchasing Manual and  
Code expected by August 2025. Significant changes to the travel policy, which hadn't  
been revised since 2017, included expanding coverage to contractors and consultants,  
standardizing out-of-state travel agendas, and updating mileage reimbursement rules.  
Employees with vehicle allowances could claim expenses for travelling over 50 miles  
one way.  
County Administrator John Titkanich addressed the delegation of authorization  
responsibilities within the County's Administration to enhance operational efficiency,  
particularly for out-of-state travel. He clarified that while he would retain ultimate  
oversight, Deputy and Assistant County Administrators, as well as Department  
Heads, would be allowed to handle authorizations. Administrator Titkanich assured  
Chairman Flescher that his authority remained intact, emphasizing the importance of  
maintaining communication and accountability regarding expenditures while delegating  
decision-making power.  
Additionally, Ms. Hyde presented a new food items policy for special events and  
training meetings, ensuring employees had access to food during extended work  
hours. Key highlights included spending limits for meals, justification for food costs at  
events, and processes for procurement and approval. These updates aimed to  
streamline operations, particularly for the Recreation Department.  
A motion was made by Vice Chairman Loar, seconded by Commissioner Adams,  
to approve staff's recommendation. The motion carried by the following vote:  
5 -  
Aye:  
Chairman Flescher, Vice Chairman Loar, Commissioner Adams, Commissioner  
Earman, and Commissioner Moss  
H. Parks, Recreation, and Conservation  
I. Planning and Development Services  
J. Public Works  
K. Sandridge Golf Club  
25-0694  
National Golf Foundation Report - Sandridge Golf Club  
13.K.1.  
Recommended Action:  
Staff recommends the Board accept the NGF report and direct staff to develop a  
revised staffing plan and implementation strategy to be timely coordinated for  
when the additional services will be offered following construction of the new  
clubhouse and banquet facilities at Sandridge Golf Club.  
A copy of this report is available to view in the Clerk to the Board Office  
Deputy County Administrator Mike Zito, Director of Golf Bella Nagy, and  
Richard Singer from the National Golf Foundation (NGF) discussed the future of  
Sandridge Golf Club. They presented insights on the current and proposed  
structure of the clubhouse, highlighting the importance of bringing food and  
beverage services in-house following the clubhouse's construction, which had  
been facilitated by bond financing. This move aligned with legal advice to limit  
private involvement due to public funding constraints.  
Mr. Nagy aimed to reinstate the 4COP liquor license for in-house operations that  
existed from 1987 to 2016, prior to privatization. Mr. Singer shared insights from  
the report which emphasized the need for a robust management structure to  
support new amenities and services. He also discussed how the new clubhouse  
would change operational dynamics, providing an organizational chart and staffing  
plan that aligned with the recommendations from the NGF. Overall, the County  
had made significant progress in preparing for the clubhouse's opening.  
During the discussion, Commissioner Adams questioned the new Organizational  
Chart, prompting Mr. Zito to explain efforts to enhance efficiency. Plans to hire  
key positions, such as a food and beverage manager, were discussed as part of a  
shift towards in-house management to meet financing obligations.  
Concerns were raised about the financial implications and transparency of this  
approach. Mr. Singer emphasized the need to align service levels. He referenced  
case studies to improve the overall experience at new facilities. County  
Administrator John Titkanich noted a lack of clarity in departmental structures and  
recommended refining them to improve efficiency.  
Chairman Flescher highlighted the need for enhancements at Sandridge and  
acknowledged concerns about financial responsibilities within the organizational  
chart, but remained optimistic about aligning service quality with cost  
considerations.  
Mr. Singer pointed out that the Sandridge facility was currently self-sustaining and  
was expected to maintain its financial stability with the introduction of new  
amenities. Mr. Zito reiterated that the presentation was an initial outline of a  
comprehensive plan focused on optimizing resources and enhancing the venue to  
meet community expectations, noting growth in hosted events over the past  
decade.  
Commissioner Adams sought clarification on a newly presented study related to  
the clubhouse expansion, expressing surprise at the differing information about  
food and beverage services compared to her previous understanding. The  
presentation outlined projected food and beverage revenue estimates, staffing  
plans for up to 16 new positions, and anticipated labor expenses starting in fiscal  
year 2027.  
Mr. Zito stressed the importance of starting discussions on the study, presenting  
the project as an opportunity for the Board to shape its direction. He advocated  
for directing staff to initiate the liquor license application process, thereby  
facilitating a smoother transition for operations at the new clubhouse.  
Administrator Titkanich recommended that the Board accept the NGF report and  
initiate the liquor license application while suggesting that the revised staffing plan  
be addressed later during the budget process. He raised concerns about expense  
validation and emphasized the need for generated revenue to support staffing  
levels.  
Commissioner Earman expressed his support for accepting the National Golf  
Foundation Report and urged the Board to take action, including obtaining a  
liquor license and advancing development at Sandridge.  
A motion was made by Commissioner Earman, seconded by Chairman  
Flescher, to accept the National Golf Foundation report and to have staff  
proceed with obtaining the 4COP Liquor License and completing the  
necessary steps for setting up operations at the Sandridge Golf Club. The  
motion carried by the following vote:  
5 -  
Aye:  
Chairman Flescher, Vice Chairman Loar, Commissioner Adams, Commissioner  
Earman, and Commissioner Moss  
L. Utilities Services  
14. COUNTY ATTORNEY MATTERS  
25-0672  
Environmental Control Hearing Board (ECHB) Officer Appointment  
14.A.  
Recommended Action:  
The County Attorney recommends that the Board review the Letter of  
Recommendation from Florida Department of Health in Indian River County and  
determine whether to appoint the applicant as the Officer for the Environmental  
Control Hearing Board.  
Attachments: FLDOHECHB Recommendation - Heather Waters  
County Attorney Jennifer Shuler recommended Heather Waters for the position of  
Environmental Control Hearing Board Officer following Julianne Price's retirement.  
The Environmental Control Hearing Board, which worked with the County and  
Health Department to enforce health laws, appointed its members and officers based  
on recommendations from the County Health Director. Ms. Waters, currently the  
DOH Environmental Manager, was endorsed for the role. Chairman Flescher praised  
her impressive background and dedication, expressing his support for the  
appointment.  
Ms. Waters stated that she had appeared before the Environmental Control Hearing  
Board many times, not as a defendant, but as a witness. She appreciated the  
collaboration the team had maintained over the years with Ms. Julianne Price. Ms.  
Price was leaving behind big shoes to fill, and Ms. Waters was grateful for the  
opportunity to do her best in continuing the good work that had been done.  
A motion was made by Commissioner Earman, seconded by Chairman Flescher,  
to appoint Heather Waters to the Environmental Control Hearing Board (ECHB).  
The motion carried by the following vote:  
5 -  
Aye:  
Chairman Flescher, Vice Chairman Loar, Commissioner Adams, Commissioner  
Earman, and Commissioner Moss  
15. COMMISSIONERS MATTERS  
A. Commissioner Joseph E. Flescher, Chairman  
B. Commissioner Deryl Loar, Vice Chairman  
C. Commissioner Susan Adams  
D. Commissioner Joseph H. Earman  
E. Commissioner Laura Moss  
16. SPECIAL DISTRICTS AND BOARDS  
A. Emergency Services District  
The Board of County Commissioners reconvened as the Board of Commissioners of  
the Solid Waste Disposal District. The minutes will be approved at an upcoming  
Solid Waste Disposal District meeting.  
B. Solid Waste Disposal District  
25-0671  
16.B.1.  
Work Order No. 9 to Geosyntec for One Year of Groundwater  
Monitoring/Reporting at the Former South Gifford Road Landfill  
Recommended Action:  
Solid Waste Disposal District staff recommends that its Board approves and  
authorizes the Chairman to sign the attached Work Order No. 9 authorizing  
Geosyntec to provide groundwater monitoring/reporting and related consulting  
services for the Former Gifford Road Landfill in compliance with FDEP  
requirements for a period of one year not to exceed fee of $92,901.14.  
Attachments: Geosyntec WO No 9  
There was no discussion on this Item.  
A motion was made by Commissioner Adams, seconded by Vice Chairman  
Loar, to approve staff's recommendation. The motion carried by the following  
vote:  
5 -  
Aye:  
Chairman Flescher, Vice Chairman Loar, Commissioner Adams, Commissioner  
Earman, and Commissioner Moss  
25-0674  
16.B.2.  
Final Pay to Geosyntec for Work Order No. 6 – Groundwater  
Monitoring/Reporting and Related Consulting Services at the South  
Gifford Road Landfill  
Recommended Action:  
Solid Waste Disposal District staff recommends that its Board approve  
Geosyntec’s final invoice amount of $6,397.64.  
Attachments: Geosyntec Final Invoice  
There was no discussion on this Item.  
A motion was made by Commissioner Adams, seconded by Vice Chairman  
Loar, to approve staff's recommendation. The motion carried by the  
following vote:  
5 -  
Aye:  
Chairman Flescher, Vice Chairman Loar, Commissioner Adams, Commissioner  
Earman, and Commissioner Moss  
25-0684  
Approval of SWDD Meeting Minutes of May 20, 2025  
16.B.3.  
Recommended Action:  
Approve  
Attachments: 05202025 SWDD Draft  
A motion was made by Vice Chairman Loar, seconded by Commissioner  
Adams,to approve the SWDD Meeting Minutes of May 20, 2025, as written.  
The motion carried by the following vote:  
5 -  
Aye:  
Chairman Flescher, Vice Chairman Loar, Commissioner Adams, Commissioner  
Earman, and Commissioner Moss  
25-0640  
16.B.4  
Final Pay to Geosyntec for Work Order No. 1, Amendment 1, 2 & 3 -  
Segment 3 Cell 3 Liner Construction, Indian River County Landfill  
Facility  
Recommended Action:  
Solid Waste Disposal District staff recommends that its Board approve  
Geosyntec’s final invoice amount of $12,418.18.  
Attachments: Geosyntec Completion Report  
Geosyntec Final Invoice  
There was no discussion on this Item.  
A motion was made by Commissioner Adams, seconded by Vice Chairman  
Loar, to approve staff's recommnendation. The motion carried by the  
following vote:  
5 -  
Aye:  
Chairman Flescher, Vice Chairman Loar, Commissioner Adams, Commissioner  
Earman, and Commissioner Moss  
17. PUBLIC COMMENT: NON-AGENDA-RELATED MATTERS  
Vero Beach City Council Member Aaron Vos expressed his gratitude to the Board  
for approving funding for the July 4th fireworks show. He emphasized the importance  
of their participation in the event.  
18. ADJOURNMENT  
There being no further business the Chairman adjourned the meeting at 1:02 p.m.