Road Impact Fee Study - Volusia County, Florida · The recent history of the County’s road impact fees is summarized as follows. 1999 – The last comprehensive study of the road

Road Impact Fee Study

for Volusia County, Florida

September 2018

Supplemental Document Item 12 - 1

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Item 12 October 2, 2018 Supplemental Document Road Impact Fee Study by Duncan Associates


Table of Contents

EXECUTIVE SUMMARY ................................................................................................................ 1

Background ...................................................................................................................................... 1 Summary of System Evaluation .................................................................................................... 3 Updated Fees.................................................................................................................................... 5 Comparative Fees ............................................................................................................................ 6

METHODOLOGY ............................................................................................................................ 8 Standards-Based ............................................................................................................................... 8 Plan-Based ........................................................................................................................................ 9 Mobility Fees .................................................................................................................................... 9 Recommendation........................................................................................................................... 10

DEVELOPER CREDITS ............................................................................................................... 11 Ordinance Amendments .............................................................................................................. 13 Recommendations ......................................................................................................................... 13

SERVICE AREAS AND BENEFIT DISTICTS ........................................................................ 14 Service Areas .................................................................................................................................. 14 Benefit Districts ............................................................................................................................. 14 Recommendations ......................................................................................................................... 15

SERVICE UNITS ............................................................................................................................. 16 Trip Generation ............................................................................................................................. 16 New Trip Factor ............................................................................................................................ 16 Average Trip Length ..................................................................................................................... 16 Adjustment Factor ......................................................................................................................... 16 Travel Demand Summary ............................................................................................................ 18

COST PER SERVICE UNIT.......................................................................................................... 19 Major Roadway System................................................................................................................. 19 Level of Service .............................................................................................................................. 19 Roadway Project Cost ................................................................................................................... 21

NET COST PER SERVICE UNIT ............................................................................................... 23 Debt Credit ..................................................................................................................................... 23 Gas Tax Credit ............................................................................................................................... 23 Net Cost per Service Unit Summary .......................................................................................... 24

FEE SCHEDULE ............................................................................................................................. 25 APPENDIX A: MAJOR ROAD INVENTORY ........................................................................ 26 APPENDIX B: ROADWAY FUNDING ................................................................................... 35 APPENDIX C: FLORIDA IMPACT FEE ACT ....................................................................... 37 APPENDIX D: STUDY COMPARISONS ................................................................................ 38

Comparison of 2007 and 2018 Studies ...................................................................................... 38 Comparison of 2016 and 2018 Drafts ........................................................................................ 39


List of Tables

Table 1. Current Impact Fees and 2003 and 2007 Study Amounts............................................. 2 Table 2. Comparison of Current and Updated Road Impact Fees ............................................. 5 Table 3. Comparative Road Impact Fees ........................................................................................ 6 Table 4. Inflation-Adjusted Single-Family Fee ............................................................................. 11 Table 5. Road Impact Fee Cash Payments vs. Credits Used, FY 2013-2017 .......................... 12 Table 6. Outstanding Developer Credit Balances, 2012-2018 ................................................... 13 Table 7. Expected County-Wide Vehicle-Miles of Travel .......................................................... 17 Table 8. Local Adjustment Factor .................................................................................................. 17 Table 9. Travel Demand Schedule ................................................................................................. 18 Table 10. Total Daily Vehicle-Miles by Road Type ..................................................................... 19 Table 11. Existing Level of Service by Roadway Class ............................................................... 21 Table 12. Major Roadway Cost per Lane-Mile ............................................................................. 22 Table 13. Cost per Vehicle-Mile of Capacity ................................................................................ 22 Table 14. Road Debt Credit ............................................................................................................ 23 Table 15. Gas Tax Credit per Service Unit ................................................................................... 24 Table 16. Net Cost per Service Unit .............................................................................................. 24 Table 17. Updated Road Impact Fees............................................................................................ 25 Table 18. Existing Major Roadway Inventory .............................................................................. 26 Table 19. Federal/State Capacity Funding, 2013-2018 ............................................................... 35 Table 20. Local Option Gas Tax Funding, FY 2005-FY 2017 .................................................. 36 Table 21. Comparison to 2007 Study ............................................................................................. 38 Table 22. Comparison to 2016 Draft ............................................................................................. 39

List of Figures

Figure 1. Comparative Single-Family Road Fees (per unit) .......................................................... 6 Figure 2. Comparative Retail Road Fees (per 1,000 sq. ft.) .......................................................... 7 Figure 3. Comparative Office Road Fees (per 1,000 sq. ft.) ......................................................... 7 Figure 4. Cash Payments vs. Credits Used, FY 2013-2017 ......................................................... 12 Figure 5. Thoroughfare Road Impact Fee Benefit Districts ....................................................... 15 Figure 6. Functional Classification Map ........................................................................................ 20

Duncan Associates

Clancy Mullen, Principal, Project Manager

17409 Rush Pea Circle, Austin, TX 78738

512-423-0480; [email protected]


Volusia County, Florida

Road Impact Fee Study 1 September 24, 2018

EXECUTIVE SUMMARY

This study evaluates the County’s current thoroughfare road impact fee system, makes recommendations related to methodology, developer credits, land use categories, and benefit districts, and calculates updated fees based on those recommendations. This executive summary first provides background on the recent history of the County’s road impact fees. It then summarizes the policy options and staff/consultant recommendations derived from the current system evaluation. Next, it compares current fees to updated fees. It concludes by comparing the current and updated fees to those currently charged by eight nearby or adjacent counties.

Background

The County’s current thoroughfare road impact fees are summarized in Table 1 on the following page, and are also compared with the maximum fair-share amounts calculated in the 2003 and 2007 studies. The recent history of the County’s road impact fees is summarized as follows. 1999 – The last comprehensive study of the road impact fees that was implemented by the County was prepared in 1999.1 2003 – The current road impact fees are based on a study prepared in 2003.2 This was not a complete update, addressing only the cost and revenue credit components. The travel demand factors (trip generation rates, new trip factors, and average trip lengths) continued to be based on the 1999 study. 2004 – Beginning February 2, 2004, the road fees were implemented at about two-thirds (67.9%) of the amounts calculated in the 2003 study. The fees were adjusted annually for cost inflation for the next three years, so that by February 1, 2007 the fees were at about 79% of the amounts calculated in 2003. 2007 – A comprehensive update was performed in 2007,3 but the updated fees were not adopted. The fees calculated in 2007 were generally more than triple current fees. 2011 – Road impact fees for residential uses were completely suspended for two years beginning July 1, 2011, and were phased back in over the following two years.4 The fees were assessed at one-third beginning July 1, 2013, and at two-thirds beginning July 1, 2014. The residential fees were restored to 2007 levels (79% of 2003 study fees) on July 1, 2015.

1 Ghyabi-Lassiter and Associates, Impact Fee Update Study, March 4, 1999 2 TEI and Tindale-Oliver, Roadway Impact Fee Update Technical Memorandum, September 25, 2003 3 Tindale-Oliver & Associates, Inc., Volusia County Parks & Recreation, Fire Rescue Services, and Transportation Impact Fee Update Study, November 6, 2007 4 Volusia County Ordinance 2011-22


Executive Summary



Table 1. Current Impact Fees and 2003 and 2007 Study Amounts

2003 Current 2007

Land Use Type Unit Study Fee Study

Residential

Single-Family Detached Dwelling $2,653 $2,174 $7,201

Apartment Dwelling $1,838 $1,506 $5,379

Townhouse/Condo/2-3 Family Dwelling $1,347 $1,105 $5,557

Mobile Home Park Space $927 $761 $3,039

Retail/Commercial

Retail: Less than 10,000 1,000 sq. ft. $6,560 $5,350 $14,286

Retail: 10,000 - 99,000 1,000 sq. ft. $4,250 $3,470 n/a

Retail: 100,000 - 1,000,000 1,000 sq. ft. $3,770 $3,080 n/a

Retail: Greater than 1,000,000 1,000 sq. ft. $4,560 $3,710 $12,655

Bank w/Drive thru 1,000 sq. ft. $13,430 $10,960 $48,085

Bank w/no Drive thru 1,000 sq. ft. $5,570 $4,550 $26,730

Quality Restaurant 1,000 sq. ft. $9,910 $8,090 $33,440

High-Turnover Restaurant 1,000 sq. ft. $12,980 $10,590 $38,667

Fast Food Restaurant 1,000 sq. ft. $28,190 $23,010 $100,216

CBD Sandwich Shop 1,000 sq. ft. $5,860 $4,780 $4,077

Auto Care 1,000 sq. ft. $4,530 $3,700 $13,535

New and Used Car Sales 1,000 sq. ft. $6,450 $5,270 $18,287

Supermarket 1,000 sq. ft. $8,330 $6,800 $18,084

Convenience Store 1,000 sq. ft. $21,040 $17,170 n/a

Convenience Store w/Gas Pumps 1,000 sq. ft. $17,880 $14,590 $48,635

Convenience/Gas/Fast Food 1,000 sq. ft. $33,700 $27,510 $126,262

Home Improvement Store 1,000 sq. ft. $4,410 $3,600 $12,920

Pharmacy/Drugstore w/Drive Thru 1,000 sq. ft. $3,550 $2,900 $9,818

Furniture Store 1,000 sq. ft. $780 $630 $2,547

Tire Store/Auto Repair Bay $3,384 $2,762 $9,056

Quick Lubrication Bay $4,713 $3,847 $8,714

Movie Theater Screen $11,514 $9,398 $31,972

Hotel Room $1,545 $1,266 $5,156

Motel Room $832 $683 $2,870

Office

Office under 10,000 1,000 sq. ft. $6,290 $4,320 n/a

Office over 10,000 1,000 sq. ft. $2,830 $2,310 $11,341

Corporate Headquarters Building 1,000 sq. ft. $1,810 $1,480 $5,843

Medical Office 1,000 sq. ft. $6,810 $5,560 $24,454

Industrial/Warehouse

Light Industrial 1,000 sq. ft. $1,500 $1,220 $4,945

Manufacturing 1,000 sq. ft. $830 $680 $2,742

Warehouse 1,000 sq. ft. $1,060 $860 $3,562

Mini-warehousing 1,000 sq. ft. $530 $430 $1,073

Public/Institutional

Hospital 1,000 sq. ft. $3,050 $2,490 $10,556

Church 1,000 sq. ft. $1,480 $1,210 $4,880

Day Care 1,000 sq. ft. $5,380 $4,390 $16,697

Nursing Home Bed $265 $218 $869

General Recreation Campsite $941 $768 n/a

Major Sports Facility Pk Space $571 $466 n/a

Local Park Pk Space $431 $352 n/a

District Park Pk Space $841 $523 n/a Source: Study fees from reports cited on previous page; current fees from Volusia County Code of

Ordinances, fees effective February 1, 2007 (fees include 3% administrative charge; fees shown to

nearest dollar; current nonresidential fees per square foot have been multiplied by 1,000).


Executive Summary



Summary of System Evaluation

Methodology

The major methodological alternatives are consumption-based versus plan-based. The County’s fees were calculated using a consumption-based methodology, which is by far the most commonly-used road impact fee methodology in Florida. So-called “mobility fees” are a variant of transportation impact fees calculated using one of the two basic methodologies. Mobility fees tend to differ from traditional road impact fees in two main respects: including multi-modal components and/or having different fee schedules that apply in different geographic subareas. However, mobility fees are not part of this update study. This update is consistent with the methodology of the 2003 study, with the following exceptions: (1) it excludes municipal roads and collectors that don’t provide regional connectivity from the fee calculations, (2) it calibrates travel demand characteristics to current observable traffic, and (3) it provides a credit for outstanding road debt. Developer Credits

There is a current imbalance between adopted fees and developer credits. Current fees are based on a 15-year-old study and are low relative to actual current costs. Developers, on the other hand, get credit for the current costs of right-of-way dedications and improvements. As a result, the use of credits has become a relatively large share of fee payments, reducing the amount of cash fee revenues. The consultant recommends that the County consider adopting updated fees at close to the full current cost. The County could also impose some additional ordinance restrictions on developer credits to help rein in their future growth. These could include the following: ■ Collector roads that do not provide regional connectivity have been excluded from the

updated fee calculations. Developer improvements of such roads should not be eligible for credit against the thoroughfare fees.

■ Tie ownership of future credits to the property that was subject to the right-of-way dedication

or roadway improvement requirement, rather than to the person who paid the fee. Only allow transfer of excess credits beyond what is needed to offset fees for the planned development.

■ Set an expiration date for the use of credits, requiring them to be used within a certain time

period (e.g., ten years from approval of the development agreement or completion of the improvement or dedication). Note that the current ordinance requires the County to refund fees not spent in seven years.

Land Use Categories

The County has indicated a desire to retain the current land use categories to the extent practical. This update recommends the following changes to be consistent with current trip data and to make it easier to assess fees.


Executive Summary



■ Drop the townhouse/condo/2-3 family category. Condominium is an ownership type,

townhouse trip rate data are not very robust, and ITE trip data are not available for duplex/triplex units. This category should be folded into the multi-family/apartment category.

■ Split multi-family into low-rise (1-2 stories) and mid-rise (3-10 stories) to reflect the latest trip

generation data. The County might also consider adding a category for age-restricted single-family units to address a common land development type.

■ Combine multiple retail and office categories by size into single retail and office categories.

While trip rates decline with shopping center and office building size, this is counter-balanced by the tendency of new trip factors and trip lengths to increase with size.

■ Combine separate categories for convenience store and convenience store without gas sales.

Higher ITE trip generation rates for convenience stores without gas sales are based on a small number of older studies.

■ Drop some categories for which current trip characteristics data are not available. These

include CBD sandwich shop, general recreation, local park, and district park. Add public park, for which current data are available.

■ Major sports facility has been retained, but the trip information is dated. Consider eliminating

from the fee schedule and assessing any new such use based on an independent fee determination.

■ Change the assessment basis for movie theaters and nursing home from screens and beds,

respectively, to building square feet. Service Areas/Benefit Districts

■ Retain a single, county-wide service area. ■ Consider consolidating the existing four benefit districts into a single county-wide district. At

a minimum, consolidate them into two (east and west), consistent with how credits can be used.

Fee Study Comparisons

Comparisons between methodologies and fee calculations used in this study to the 2007 study prepared by Tindale-Oliver and to the 2016 staff review draft of this study are provided in Appendix D.


Executive Summary



Updated Fees

The updated fees are compared to current fees in Table 2.

Table 2. Comparison of Current and Updated Road Impact Fees

Current Updated Percent

Land Use Type Unit Fee Fee Change Change

Residential

Single-Family Detached * Dwelling $2,174 $5,379 $3,205 147%

Multi-Family, 1-2 Stories Dwelling $1,506 $3,213 $1,707 113%

Multi-Family, 3+ Stories Dwelling $1,506 $1,950 $444 29%

Mobile Home/RV Park Space $761 $1,982 $1,221 160%

Retail/Commercial

Shopping Center/General Retail 1,000 sq. ft. $3,080 $6,385 $3,305 107%

Bank with Drive-Through 1,000 sq. ft. $10,960 $9,745 -$1,215 -11%

Bank without Drive-Through 1,000 sq. ft. $4,550 $5,779 $1,229 27%

Quality Restaurant 1,000 sq. ft. $8,090 $17,224 $9,134 113%

High-Turnover Restaurant 1,000 sq. ft. $10,590 $21,428 $10,838 102%

Fast Food Restaurant 1,000 sq. ft. $23,010 $47,373 $24,363 106%

Auto Care 1,000 sq. ft. $3,700 $3,654 -$46 -1%

New and Used Car Sales 1,000 sq. ft. $5,270 $8,357 $3,087 59%

Supermarket 1,000 sq. ft. $6,800 $10,708 $3,908 57%

Convenience Store 1,000 sq. ft. $14,590 $24,015 $9,425 65%

Super Convenience Store (10+ fuel stations) 1,000 sq. ft. $27,510 $29,396 $1,886 7%

Home Improvement Store 1,000 sq. ft. $3,600 $12,278 $8,678 241%

Pharmacy with Drive-Through 1,000 sq. ft. $2,900 $5,162 $2,262 78%

Furniture Store 1,000 sq. ft. $630 $1,782 $1,152 183%

Tire Store/Auto Repair Bay $2,762 $4,363 $1,601 58%

Quick Lubrication Shop Bay $3,847 $4,611 $764 20%

Movie Theater 1,000 sq. ft. n/a $12,981 n/a n/a

Hotel Room $1,266 $2,974 $1,708 135%

Motel Room $683 $1,189 $506 74%

Office

General Office 1,000 sq. ft. $2,310 $3,974 $1,664 72%

Corporate Headquarters Building 1,000 sq. ft. $1,480 $3,238 $1,758 119%

Medical Office 1,000 sq. ft. $5,560 $14,630 $9,070 163%

Industrial/Warehouse

Light Industrial 1,000 sq. ft. $1,220 $2,022 $802 66%

Manufacturing 1,000 sq. ft. $680 $1,592 $912 134%

Warehouse 1,000 sq. ft. $860 $710 -$150 -17%

Mini-Warehouse 1,000 sq. ft. $430 $614 $184 43%

Public/Institutional

Hospital 1,000 sq. ft. $2,490 $2,128 -$362 -15%

Church 1,000 sq. ft. $1,210 $1,378 $168 14%

Day Care Center 1,000 sq. ft. $4,390 $6,074 $1,684 38%

Nursing Home 1,000 sq. ft. n/a $1,318 n/a n/a

Major Sports Facility Pk Space $571 $468 -$103 -18%

Public Park Acre n/a $156 n/a n/a * category also includes a mobile home on a single-family lot

Source: Current fees from Table 1 (shopping center based on 100,000 square foot center; office based on building greater

than 10,000 sq. ft., super convenience store based on convenience store/gas/fast food category); updated fees from Table

17.


Executive Summary



Comparative Fees

Volusia County’s current and updated thoroughfare road impact fees are compared with transportation impact fees charged by eight abutting or nearby counties in Table 3, including fee amounts for typical land use types, the date of the last update, and the adoption percentage. Note that most if not all use a consumption-based methodology. Volusia’s current fees are among the lowest of the group, while the updated fees are toward the high end of the comparison counties.

Table 3. Comparative Road Impact Fees

Volusia County St. Ala- Indian

Land Use Unit Current Updated Brevard Lakea

Orange Johnsb

Osceola chuac

Polkd

River

Single-Family Det. Dwelling $2,174 $5,379 $4,353 $2,706 $3,898 $7,337 $4,585 $5,183 $2,155 $4,248

Multi-Family Dwelling $1,506 $3,213 $2,677 $1,240 $2,524 $4,909 $3,203 $2,073 $1,351 $2,742

Retail 1,000 sf $3,080 $6,385 $5,270 $3,080 $5,477 $4,205 $6,823 $8,974 $3,808 $2,862

Office 1,000 sf $2,310 $3,974 $5,058 $2,623 $4,050 $2,600 $4,623 $4,275 $2,237 $4,321

Industrial 1,000 sf $1,220 $2,022 n/a $1,505 $2,163 $1,378 $2,024 $2,857 $666 $663

Date of Last Update 2003 2018 2000 2013 2012 2018 2015 n/a 2015 2014

Adoption Percentage 79% 100% n/a 70% 50% 60/75% 100% n/a 100% 100%

Consumption-Based Meth. Yes Yes Yes Yes Yes Yes Yes n/a Yes Yes Notes: (a) south benefit district; (b) fees shown have been reduced 25% for residential and 40% for nonresidential; single-family is 2,501-3,750

sf residence; multi-family is 801-1,800 sf residence; retail is 100,000 sf center; office is building greater than 100,000 sf; (c) residential fees are

for urban area assuming 2,500 sf for single-family and 1,000 sf for multi-family; retail is for non-TND center of 100,000 sf; office is for 50,000 sf or

larger building; (d) excludes impact on State/Federal highways, collector roads, and municipal roads

Source: Current and updated Volusia County fees from Table 2; fees for other counties from survey by Duncan Associates, August 1, 2018.

Figure 1. Comparative Single-Family Road Fees (per unit)

$0

$1,000

$2,000

$3,000

$4,000

$5,000

$6,000

$7,000

$8,000


Executive Summary



Figure 2. Comparative Retail Road Fees (per 1,000 sq. ft.)

$0

$1,000

$2,000

$3,000

$4,000

$5,000

$6,000

$7,000

$8,000

$9,000

$10,000

Figure 3. Comparative Office Road Fees (per 1,000 sq. ft.)

$0

$1,000

$2,000

$3,000

$4,000

$5,000

$6,000




METHODOLOGY

A wide range of methodologies have been developed to calculate impact fees, consistent with the legal requirements and guidelines described above. Despite variations, there are two primary types of methodologies, which can be referred to as “standards-based” and “plan-based.” Standards-based methodologies use a system-wide level of service standard, such as the system-wide ratio of road capacity to demand. Plan-based methodologies are generally based on modeling and geographically-specific level of service standards (e.g., “all road segments and intersections shall function at LOS D or better”), and rely on a facility master plan to create the nexus between the cost of planned improvements and the projected growth over a defined time period. In general, the standards-based approach provides greater flexibility in expenditures (a plan-based approach requires a master plan update when planned projects change). The two approaches are described in more detail below.

Standards-Based

The “standards-based” methodology uses a generalized level-of-service standard to determine the costs to accommodate new development. This approach does not require that there be a master plan, or even a list of specific planned projects that will be funded with the impact fees. Most often, the standards-based approach uses the actual level of service (LOS) that exists at the time the study is prepared. For transportation, the most common standards-based approach is often referred to as the “consumption-based” methodology. This methodology charges a new development the cost required to replace the capacity the new development will consume in the major roadway system. In other words, if a development will generate 100 vehicle-miles of travel (VMT) per day, it is charged impact fees based on the average cost to create 100 vehicle-miles of capacity (VMC). Most well-functioning roadway systems have considerably more than one VMC for each VMT (although at least a portion of this surplus system-wide capacity represents needed “slack” in the system to accommodate the fact that capacity of some roads will never be fully utilized). For the purposes of the consumption-based methodology, the appropriate LOS indicator is the system-wide ratio of capacity to demand, not the LOS of individual roadway segments. A variant of the standard consumption-based approach, called modified consumption-based, uses a VMC/VMT ratio higher than 1.00 but lower than the system-wide average. A problem with this approach is that it is often difficult to quantify the ratio between 1.00 and the existing level that is appropriate for the long term without a build-out master plan. The standard assumption of a 1.00 VMC/VMT ratio continues to be used in this update. The County’s current road impact fees were calculated in 1999 and partially updated in 2003 using a standard consumption-based methodology. The major road system was defined as all arterial and collector roads in the county, including County, municipal and State roads, but excluding the interstate system. The travel demand generated by specific land uses was based on a combination of national data and Florida studies. Average road costs per VMC were based on the cost of historical and planned projects in the county. A LOS of 1.00 VMC/VMT was implicitly assumed. Revenue credits were calculated for future gas tax revenues that would be generated by new development and available to fund capacity-expanding road improvements. The 2007 study, which was not adopted, relied on


Methodology



the same methodology, but added an adjustment to remove the cost of municipal collector roads, in recognition of the fact that some cities have adopted their own road impact fees. This update is consistent with the methodology of the 2003 study, with the following exceptions: (1) it excludes municipal roads and collectors that do not provide regional connectivity from the fee calculations, (2) it calibrates travel demand characteristics to current observable traffic, and (3) it provides a credit for outstanding road debt.

Plan-Based

In contrast to standards-based methodologies, which rely on generalized, system-wide LOS standards and the average cost to add capacity, plan-based methodologies rely on segment or intersection-specific LOS and the total cost of a list of planned improvements. A plan-based methodology basically divides the cost of planned improvements over a fixed time period by the anticipated growth in service units over the same time period. The portion of the cost of planned improvements attributable to existing LOS deficiencies must be removed from the cost used in the fee calculation. The least defensible of these approaches are those based on a Capital Improvements Plan, because there is not a strong correlation between short-term planned improvement costs and long-term costs to accommodate new development. Much more defensible are those based on a long-range master plan or build-out plan. Plan-based methodologies seldom account for the cost of existing excess capacity. Instead, they focus solely on future costs to be incurred, and generally exclude any future costs to retire debt on existing capacity. A potential advantage of the plan-based approach is that it can be used to justify reducing fees in more developed areas that have most of the build-out infrastructure in place, in order to provide an incentive for development in such areas. The difficulty, however, is in defining such areas as reasonable service areas for a major roadway system that is primarily designed to move traffic long distances. The major drawback of this approach is that any change to the long-range master plan must be accompanied by an update of the impact fees, and vice versa.

Mobility Fees

There has been much confusion in Florida in recent years over the concept of “mobility fees.” While often referred to as an alternative to transportation impact fees, a mobility fee is a transportation impact fee. The concept of a mobility fee was originally put forward as a funding mechanism to replace transportation concurrency requirements. The Community Renewal Act of 2009 (SB 360) states that “The Legislature determines that the state shall evaluate and consider the implementation of a mobility fee to replace the existing transportation concurrency system.” As originally contemplated, mobility fees would, like traditional road impact fees, be charges on new development, but they would be multi-modal (able to fund more than roads), multi-jurisdictional (at least county-wide) and distance-based (areas far removed from urban development would pay more based on greater driving distances). It was originally thought that the multi-modal aspect of the fees would provide the ability to fund transit


Methodology



operating costs. However, because the Legislature has not authorized any new kind of development fee, any mobility fee must be adopted under the authority to impose impact fees. Most transportation impact fees that have been called “mobility fees” allow the fees to be spent on more than new roads, widened roads, signalization and intersection improvements. These include things like bicycle and pedestrian facilities, bus pull-out lanes, and transit shelters. However, such improvements are also eligible to be paid for by traditional road impact fees, at least when they are constructed as a necessary part of a vehicular capacity improvement. For example, Volusia County’s standard cross-section includes some multi-modal components, such as sidewalks and bike lanes, and such improvements can be funded with road impact fees when part of an improvement that adds vehicular capacity under the terms of the current ordinance. Some Florida counties with traditional road impact fee methodologies have ordinance provisions that specifically allow road impact fee funding for such improvements when they are not part of a vehicular capacity improvement. Some mobility fees also have multiple impact fee schedules that are applicable to different subareas or development types, although again this is not unique to those that call themselves mobility fees.

Recommendation

This study’s recommendation is to retain the standard, consumption-based methodology. This is a solid, defensible methodology, it is by far the most common approach used in Florida, and it provides the flexibility to amend capital plans over time without requiring a master plan/impact fee update. Unless there is some objective of the County that can only be achieved with a plan-based approach, retaining the current methodology would seem to make the most sense. The recommended approach differs somewhat from that used in the 2003 study, as well as in the unadopted 2007 update. It uses the inventory of existing facilities and data on existing land uses to calibrate the travel demand factors, rather than relying solely on data from national sources or other Florida jurisdictions. In other words, it determines how much daily VMT would be expected on the major road system in Volusia County based on the travel demand factors, and compares that to the actual VMT. If expected VMT is higher than actual VMT, a calibration factor is introduced into the formula to reduce the expected travel demand. This has the effect of reducing the calculated fee by an across-the-board percentage for each land use category. Calibrating the travel demand schedule in this way ensures that the fees reflect actual travel demand in Volusia County. This update also excludes municipal roads from the fee calculations to ensure there is no overlap with municipal road impact fees. The County’s current road impact fees are based on the cost of arterials (excluding interstates and U.S. highways) and collectors. This update generally retains the definition of the major roadway system, but removes municipal roads and collectors that do not provide regional connectivity.




DEVELOPER CREDITS

Road impact fees differ from most other types of impact fees in that developers often are required to dedicate right-of-way or make capacity-expanding road improvements, whereas they are not generally required to make similar contributions toward other growth-related infrastructure needs, such as parks, fire/rescue or school facilities. Consequently, the approach to developer credits for road improvements is more significant in terms of potential revenue than it is for other types of impact fees charged by the County. Volusia County provides developer credits for a capacity-expanding improvement to a collector or arterial roadway that is not site-related. In addition, Volusia County’s ordinance assigns the ownership of credits to the fee-payer, and allows credits to be transferred or sold to other developers for use in the same benefit district or an adjoining district (between Zones 1 and 2 on the east side and Zones 3 and 4 on the west side). Some other Florida counties assign ownership of credits to the land owner, and only allow “excess” credits (i.e., the amount in excess of what is needed to offset the fees from the proposed development) to be transferred or sold (some counties don’t allow any transfer of excess credits). These credit policies have been accompanied by adopted road impact fees that cover less than the full net cost of accommodating the road impacts of new developments. The 2003 study fees were adopted at about two-thirds of the calculated amounts, and, even after three years of inflation adjustments in 2005-2007, are now about 20% lower than what was calculated 15 years ago. The unadopted 2007 study calculated fees that were generally three times the amounts calculated in 2003. Even if it is assumed that the 2003 study fees were recovering the full cost at the time, the current fees would need to be roughly doubled just to keep up with construction cost inflation. For a single-family home, for example, the current road impact fee would need to be increased by 102% to account for generalized construction cost inflation, as shown in Table 4.

Table 4. Inflation-Adjusted Single-Family Fee

2003 Calculated Single-Family Fee $2,653

x ENR-CCI, March 2018/March 2003 1.6537

Inflation-Adjusted 2003 Fee $4,387

Current Adopted Single-Family Fee $2,174

Inflation-Adjusted 2003 Fee $4,387

Percent Increase to Account for Inflation 102% Source: 2003 study and current fees from Table 1; inflation index

from Engineering News-Record Construction Cost Index.


Developer Credits



The County’s historical practice of charging less than full-cost fees, while simultaneously providing credits at the full cost to the developer, has resulted in a large portion of impact fee obligations being paid with credits. Cash payments versus credits over the past five years are summarized in Table 5 and illustrated in Figure 4. Over the last five years, credits accounted for half of total revenues in the Zones 1 and 2, and over one-third county-wide.

Table 5. Road Impact Fee Cash Payments vs. Credits Used, FY 2013-2017

Zone 1 Zone 2 Zone 3 Zone 4 Total

Cash Fees $5,408,778 $2,114,255 $3,436,586 $3,775,293 $14,734,912

Credits Used $5,362,778 $2,317,933 $327,557 $171,801 $8,180,069

Total Revenue $10,771,556 $4,432,188 $3,764,143 $3,947,094 $22,914,981

Credit Percent 50% 52% 9% 4% 36% Source: Volusia County, July 2, 2018.

Figure 4. Cash Payments vs. Credits Used, FY 2013-2017

$0

$5,000,000

$10,000,000

$15,000,000

$20,000,000

$25,000,000

Zone 1 Zone 2 Zone 3 Zone 4 Total

Credits Used

Cash Payments

Some jurisdictions have dealt with this problem by valuing credits at the same percentage at which fees are adopted. For example, if the fees are adopted at 50% of the full-cost amounts, credits are provided at 50% of the actual cost to the developer. This approach, however, unfairly penalizes the developer who is required to make a road improvement, compared to a developer who is only required to pay the reduced fee. It also does not address long periods of time between fee updates without consistent annual increases for cost inflation. These considerations emphasize the importance of maintaining a balance between road impact fees and the credits that are provided to developers. Currently, there are over $6 million in outstanding developer credits (see Table 6 below). The good news is that credit balances have gone down significantly over the last six years.


Developer Credits



Table 6. Outstanding Developer Credit Balances, 2012-2018

Year Zone 1 Zone 2 Zone 3 Zone 4 Total

2012 $6,937,420 $7,952,652 $731,432 $120,749 $15,742,253

2013 $6,475,751 $7,673,906 $563,039 $120,749 $14,833,445

2014 $5,314,918 $6,827,600 $579,330 $96,836 $12,818,684

2015 $4,325,224 $5,492,883 $481,913 $30,918 $10,330,938

2016 $2,070,642 $4,823,220 $446,879 $30,918 $7,371,659

2017 $1,717,271 $4,556,886 $446,879 $30,918 $6,751,954

2018 $1,352,190 $4,188,783 $718,867 $30,918 $6,290,758

Decrease $5,585,230 $3,763,869 $12,565 $89,831 $9,451,495

% Down 81% 47% 2% 74% 60% Source: Volusia County, July 9, 2018.

Ordinance Amendments

The problem with having a large portion of impact fee revenue in the form of developer credits is that impact fee expenditures are disproportionately steered toward localized improvements needed for a particular development rather than for more pressing regional priorities. Besides adopting updated fees at close to the full cost, the County could also consider some ordinance changes that could help rein in the future growth of credits. This study has removed collector roads that do not provide regional connectivity from the fee calculations. These roads tend to be low-volume arteries that primarily serve a localized area, are often constructed by developers, and are seldom in need of capacity expansion. The ordinance should be amended to clarify that such roads are not eligible for thoroughfare fee expenditures or developer credits. The use of future credits could be tied to the property that was subject to the right-of-way dedication or roadway improvement requirement, rather than to the person or entity that owns the property. Credits could be restricted to development on the property. Transfers of credits to other properties could be prohibited or restricted to the excess beyond what would be needed for the development of the host property. Another possibility would be to set an expiration date for the use of credits, requiring them to be used within a certain time period (e.g., ten years from approval of the development agreement or completion of the improvement or dedication). Note that the County is required to refund impact fees it collects if they are not spent within seven years.

Recommendations

Adopting road impact fees significantly below current net costs, while providing credit against those fees for the full cost of developer contributions, tends to create an imbalance that can have a significant negative impact on future impact fee revenues over the long term. Aside from the general recommendation to adopt fees at close to the full net cost, the County could also consider imposing some additional ordinance restrictions on developer credits, as described above.




SERVICE AREAS AND BENEFIT DISTICTS

The types of improvements to be funded with impact fees are related to the geographic areas they serve. There are two types of geographic areas in impact fee analysis: service areas and benefit districts. The service area corresponds to the area served by a set of facilities, and is generally the geographic level at which impact fees are calculated. However, a service area may be divided into multiple benefit districts as a way to further ensure that a fee-paying development will receive significant benefit from improvements. Fees that are collected in a benefit district are earmarked to be spent on improvements in the same benefit district.

Service Areas

The service area corresponds to the area primarily served by a set of facilities, and is generally the geographic level at which impact fees are calculated. Volusia County’s thoroughfare road impact fees are based on the calculation of fees for the entire county, including all municipal and unincorporated areas. A single service area is reasonable, because the thoroughfare road system is primarily designed to move traffic relatively long distances and across jurisdictional boundaries. The fact that lower class roadways, such as collectors, tend to serve more limited areas is addressed through the use of benefit districts, as discussed below. The use of a county-wide service area continues to be appropriate, and the scope of this update study does not include the calculation of updated fees for multiple service areas. While the county could be divided into multiple service areas, these areas must correspond to the general service range of the roadway facilities located within them. Because State roads and County arterials, which carry most of the traffic on the system, are designed to move vehicles long distances, designing small service areas could be problematic.

Benefit Districts

Benefit districts are subareas within a service area where the fees collected are earmarked to be spent. For the County’s thoroughfare road impact fee, the county is divided into four benefit districts that roughly approximate quadrants (Zone 1 – NE, Zone 2 – SE, Zone 3 – SW, and Zone 4 – NW), as illustrated in Figure 5. The current configuration of benefit districts does not follow County Council district boundaries, which helps avoid the tendency toward balkanization and promotes greater consideration of county-wide improvement priorities. In addition, ordinance provisions allow funds to be used in an area extending one mile north or south of the boundary separating north from south quadrants. Credits can be transferred anywhere between adjoining east-side or west-side districts. As noted above, benefit districts are a way for the County to acknowledge that some portions of the major roadway system (i.e., collector roads) serve relatively small areas. With the exclusion of collectors that do not provide regional connectivity, there is less reason to continue to have multiple benefit districts, and the County could reasonably have a single, county-wide benefit district. Another reasonable possibility, based on the current limited flexibility allowed for the use of funds, would be to have two benefit districts – east and west (i.e., consolidate Zones 1 with 2, and 3 with 4). The County has indicated support for possibly consolidating into east and west benefit districts, since this would be consistent with how credits can be used.


Service Areas and Benefit Districts



Figure 5. Thoroughfare Road Impact Fee Benefit Districts

Recommendations

■ Retain a single, county-wide service area. ■ Consider consolidating the existing four benefit districts into a single county-wide district.

At a minimum, consolidate them into two (east and west), consistent with how credits can be used.




SERVICE UNITS

In impact fee analysis, a “service unit” is a standardized measure of the demand generated by development for the type of infrastructure covered by the fee. The service unit for consumption-based road impact fees is vehicle-miles of travel (VMT). The vehicular travel demand generated by specific land use types in Volusia County is a product of four factors: 1) trip generation, 2) percent new trips, 3) average trip length and 4) a local adjustment factor to calibrate VMT generation by land use based on national and Florida travel characteristics to reflect actual system-wide travel demand.

Trip Generation

Average daily trip generation rates are based on information published in the most recent edition of the Institute of Transportation Engineers’ (ITE) Trip Generation manual. Trip generation rates represent trip ends, or driveway crossings at the site of a land use. Thus, a single one-way trip from home to work counts as one trip end for the residence and one trip end for the work place, for a total of two trip ends. To avoid over counting, all trip rates are divided by two. This places the burden of travel equally between the origin and destination of the trip and eliminates double charging for any particular trip. This update utilizes the 10th edition of the ITE manual published in 2017. The current fees are based in part on trip generation rates from the 6th edition, published in 1997.

New Trip Factor

Trip rates must also be adjusted by a “new trip factor” to exclude pass by and diverted-linked trips. This adjustment is intended to reduce the possibility of over-counting by only including primary trips generated by the development. Pass by trips are those trips that are already on a particular route for a different purpose and simply stop at a development on that route. For example, a stop at a convenience store on the way home from the office is a pass by trip for the convenience store. A pass by trip does not create an additional burden on the street system and therefore should not be counted in the assessment of impact fees. A diverted-linked trip is similar to a pass by trip, but a diversion is made from the regular route to make an interim stop. The reductions for pass by and diverted-linked trips are drawn from a recent compendium of Florida origin-and-destination studies.

Average Trip Length

In the context of a road impact fee based on a consumption-based methodology, it is important to determine the average length of a trip on the major roadway system. Average trip lengths are derived from a recent compendium of Florida origin-and-destination studies.

Adjustment Factor

This update study uses national data and Florida data for trip generation rates and average trip lengths and calibrates total VMT to local conditions using a local adjustment factor. The local adjustment factor is derived by dividing the VMT that is actually observed on the major roadway system by the VMT that would be expected based on existing land uses, national trip generation rates, and state-wide new trip factors and average trip lengths.


Service Units



The first step in developing the adjustment factor is to estimate the total daily vehicle-miles of travel (VMT) that would be expected on Volusia County’s major roadway system based on national and Florida travel demand characteristics. The number of existing units for each land category is multiplied by average daily trip generation rate, new trip percentage and average trip length and summed to determine total expected county-wide VMT. As shown in Table 7, existing county-wide land uses, using national and Florida trip characteristics, would be expected to generate approximately 9.5 million VMT during an average weekday.

Table 7. Expected County-Wide Vehicle-Miles of Travel

ITE Existing Trip % New Avg. Trip Expected

Land Use Code Unit Units Rate Trips Length VMT

Single-Family Detached 210 Dwelling 184,702 4.72 100% 6.62 5,771,273

Multi-Family 220 Dwelling 57,238 3.66 100% 5.10 1,068,405

Mobile Home 240 Dwelling 23,111 2.50 100% 4.60 265,777

Retail/Commercial 820 1,000 sf 41,508 18.87 68% 2.89 1,539,255

Office 710 1,000 sf 19,383 4.87 92% 5.15 447,245

Industrial 130 1,000 sf 10,266 2.48 92% 5.15 120,628

Warehouse 150 1,000 sf 21,748 0.87 92% 5.15 89,647

Public/Institutional 620 1,000 sf 29,096 3.32 89% 2.59 222,670

Total 9,524,900 Source: Existing residential units from 2010 Census, 2003-2013 American Community Survey, and 2010-2017 county-

wide building permit data from Volusia County on July 2, 2018; existing nonresidential square feet from Volusia County

Property Assessor database as of June 14, 2018, received July 2, 2018; trip rates, % new trips and average trip lengths

from Table 9; expected daily VMT is product of existing units, trip rate, % new trips and average trip length.

The next step in developing the local trip length adjustment factor is to determine actual county-wide VMT on Volusia County’s major roadway system. An inventory of the existing major roadway system was prepared as part of this update (see Table 18 in the Appendix). Roadway segment lengths and current traffic volumes are used to determine actual daily travel, which totals about 5.69 million VMT for all State highways, County arterial streets, and County collector roads. Municipal arterials and collectors have been excluded from the major roadway inventory to ensure no overlap with municipal road impact fees. The expected VMT based on existing land use data and national/regional travel demand characteristics over-estimates VMT actually observed on the major roadway system. This is not surprising given that the major roadway system excludes travel on interstates, U.S. highways, local roads, municipal roads, and roads outside the county. Consequently, it is necessary to develop an adjustment factor to account for this variation. The local adjustment factor is the ratio of actual to expected VMT on the major roadway system. As shown in Table 8, the expected travel demand for each land use category should be multiplied by a local adjustment factor of 0.597.

Table 8. Local Adjustment Factor

Actual Daily Vehicle-Miles of Travel (VMT) 5,686,467

÷ Expected Daily Vehicle-Miles of Travel (VMT) 9,524,900

Ratio of Actual to Expected VMT 0.597 Source: Actual daily VMT from Table 10; expected VMT from Table 7.


Service Units



Travel Demand Summary

The result of combining trip generation rates, new trip factors, average trip lengths and the local adjustment factor is the travel demand schedule. The travel demand schedule establishes the average daily vehicle-miles of travel (VMT) generated by various land use types per unit of development for Volusia County. The updated travel demand schedule is presented in Table 9. For each land use, daily VMT is the product of trip rate, percent new trips, average trip length, and the adjustment factor.

Table 9. Travel Demand Schedule

1/2 Trip Local

Trip % New Length Adjust. VMT/

Land Use Type (ITE Code) Unit Rate Trips (mi.) Factor Unit

Single-Family Detached (210) Dwelling 4.72 100% 6.62 0.597 18.65

Multi-Family, Low-Rise (220) Dwelling 3.66 100% 5.10 0.597 11.14

Multi-Family, Mid-Rise (222) Dwelling 2.22 100% 5.10 0.597 6.76

Mobile Home/RV Park (240) Space 2.50 100% 4.60 0.597 6.87

Shopping Center (820) 1,000 sq. ft. 18.87 68% 2.89 0.597 22.14

Bank w/Drive-Thru (912) 1,000 sq. ft. 50.01 46% 2.46 0.597 33.79

Bank w/o Drive-Thru (911) 1,000 sq. ft. 29.66 46% 2.46 0.597 20.04

Quality Restaurant (931) 1,000 sq. ft. 41.92 76% 3.14 0.597 59.72

High-Turnover Restaurant (932) 1,000 sq. ft. 56.09 70% 3.17 0.597 74.30

Fast Food Restaurant (934) 1,000 sq. ft. 235.47 57% 2.05 0.597 164.26

Auto Care (943) 1,000 sq. ft. 8.14 72% 3.62 0.597 12.67

New and Used Car Sales (841) 1,000 sq. ft. 13.53 78% 4.60 0.597 28.98

Supermarket (850) 1,000 sq. ft. 53.39 56% 2.08 0.597 37.13

Convenience Store (853) 1,000 sq. ft. 342.10 27% 1.51 0.597 83.27

Super Convenience Store (960) 1,000 sq. ft. 418.79 27% 1.51 0.597 101.93

Home Improvement Store (862) 1,000 sq. ft. 15.37 74% 6.27 0.597 42.57

Pharmacy w/Drive-Thru (880) 1,000 sq. ft. 45.04 32% 2.08 0.597 17.90

Furniture Store (890) 1,000 sq. ft. 3.15 54% 6.09 0.597 6.18

Tire Store/Auto Repair (849) Bay 15.27 68% 2.44 0.597 15.13

Quick Lubrication Shop (941) Bay 20.00 68% 1.97 0.597 15.99

Movie Theater (444) 1,000 sq. ft. 39.04 87% 2.22 0.597 45.01

Hotel (310) Room 4.18 66% 6.26 0.597 10.31

Motel (320) Room 1.67 66% 6.26 0.597 4.12

General Office (710) 1,000 sq. ft. 4.87 92% 5.15 0.597 13.78

Corporate Headquarter Bldg (714) 1,000 sq. ft. 3.97 92% 5.15 0.597 11.23

Medical Office (720) 1,000 sq. ft. 17.40 88% 5.55 0.597 50.73

Light Industrial (110) 1,000 sq. ft. 2.48 92% 5.15 0.597 7.01

Manufacturing (140) 1,000 sq. ft. 1.95 92% 5.15 0.597 5.52

Warehouse (150) 1,000 sq. ft. 0.87 92% 5.15 0.597 2.46

Mini-Warehouse (151) 1,000 sq. ft. 1.25 92% 3.10 0.597 2.13

Hospital (610) 1,000 sq. ft. 5.36 89% 2.59 0.597 7.38

Church (560) 1,000 sq. ft. 3.47 89% 2.59 0.597 4.78

Day Care Center (565) 1,000 sq. ft. 23.81 73% 2.03 0.597 21.06

Nursing Home (620) 1,000 sq. ft. 3.32 89% 2.59 0.597 4.57

Major Sports Facility Pk Space 1.05 100% 2.59 0.597 1.62

Public Park (411) Acre 0.39 90% 2.59 0.597 0.54 Source: Trip rates are ½ of daily trip ends from Institute of Transportation Engineers (ITE), Trip Generation Manual,

10th Edition, 2017 (major sports facility from TEI, Roadway Impact Fee Update, 2003), new trip percentages and

trip lengths from Florida studies summarized in Tindale-Oliver & Associates, City of St. Cloud Mobility Fee Study,

January 2017; local adjustment factor from Table 8; VMT is product of trip rate, % new trips, trip length, and

adjustment factor.




COST PER SERVICE UNIT

This chapter calculates the cost per service unit (VMT) used in the impact fee calculations. The methodology used is the consumption-based approach described in the Methodology chapter.

Major Roadway System

The consumption-based road impact fee methodology charges new development for the capacity that it consumes in the major roadway system. To determine the cost per service unit of new travel on the major roadway system, it is necessary to clearly define the major roadway system. Thoroughfares are defined as all State roads, County arterials, and County collectors that provide regional connectivity. Excluded from this definition are interstates and U.S. highways, which tend to carry a significant amount of through traffic, and municipal roads, to ensure that the County road impact fee does not overlap with municipal road impact fees. The functional classification of roadways in Volusia County is illustrated in Figure 6 on the following page. The distribution of existing daily VMT by roadway type on the major roadway system is summarized in Table 10. Over half of total daily VMT in Volusia County’s major roadway system is on the State highway system.

Table 10. Total Daily Vehicle-Miles by Road Type

Roadway Class Total VMT Percent

State Highways 3,053,893 53.7%

County Arterials 1,708,497 30.0%

County Collectors 924,077 16.3%

Total 5,686,467 100.0% Source: Table 18 in Appendix A.

Level of Service

The consumption-based methodology implicitly assumes that new development should replace the capacity that it consumes on a one-to-one basis. For each new vehicle-mile of travel (VMT) generated by a development, new development is charged the cost to construct an additional vehicle-mile of capacity (VMC). Another way of stating this is that the level of service that the road impact fees are designed to maintain is a ratio of VMC/VMT equal to one. While it is a relatively straight-forward matter to determine the amount of travel, the capacity of a roadway depends on the operational level of service that is acceptable. Volusia County has adopted minimum level of service standards for all its major roadways, varying from LOS C to LOS E. The County has also developed generalized maximum roadway capacities for each roadway segment, which take into account functional classification (major collector, minor arterial, etc.), roadway cross-section (number of lanes, whether divided or undivided, turn lanes, etc.), and area (rural undeveloped, rural developed, and urban). This analysis utilizes the County’s current capacity estimates.


Cost per Service Unit



Figure 6. Functional Classification Map





Most functioning major roadway systems require an overall VMC/VMT ratio greater than one, which represents a system in which, on average, every roadway segment is utilized to its full capacity. Because traffic is not spread uniformly in proportion to capacity, even systems with severe congestion issues on some major roadways have VMC/VMT ratios greater than one. The existing levels of service on Volusia County’s major roadway system by roadway class are summarized in Table 11. Overall, the system has twice as much capacity as demand. As noted in the Methodology chapter, the City could base the fees on a VMC/VMT ratio somewhat higher than 1.00, referred to as a modified consumption-based approach. This update, however, retains the standard consumption-based approach used in previous studies.

Table 11. Existing Level of Service by Roadway Class

VMC/VMT

Roadway Class VMC VMT Ratio

State Highways 5,313,944 3,053,893 1.74

County Arterials 3,082,243 1,708,497 1.80

County Collectors 3,396,713 924,077 3.68

Total 11,792,900 5,686,467 2.07 Source: VMC and VMT from Table 18 in Appendix A.

Roadway Project Cost

While the most obvious component of a roadway project is the physical roadway itself, there are other components that add to the cost of the project. These include the cost of professional services (planning and design), right of way (land), environmental mitigation, utility relocation, permitting, inspection, and project management. In a consumption-based impact fee system, roadway construction costs are entered into the formula as an average cost for providing new roadway capacity. Using this method, assuming there are no dramatic changes to the type of construction contemplated, it is not necessary to revisit impact fees each time that the capital improvement program changes. Updates at reasonable periodic intervals are sufficient to analyze potential changes to average costs. The average cost to add capacity to the major roadway system is determined by examining the most recent cost data available. The roadway improvements costs shown in Table 12 are for projects that have been recently-completed or have bids or detailed cost estimates. The average cost from this set of recent and planned major roadway improvements is $3.70 million per added lane-mile.





Table 12. Major Roadway Cost per Lane-Mile

New New Cost/

Roadway Segment Status Project Miles Lns Ln-Mi Total Cost Lane-Mi.

Saxon Blvd, Kmart Entry-I-4 Ramp Done 4 to 6 Lns 1.31 2 2.62 $5,698,295 $2,174,922

Tymber Crk Rd, SR 40-Peruvian Ln Done 2 to 4 Lns 0.70 2 1.40 $9,152,093 $6,537,209

LPGA Blvd, Jimmy Ann-e/o Derbyshire Est. 2 to 4 Lns 1.05 2 2.10 $7,139,360 $3,399,695

Williamson Blvd/ Dunn Ave-LPGA Blvd Done 2 to 4 Lns 2.10 2 4.20 $5,367,433 $1,277,960

Howland Blvd, Courtland-SR 415 Bid 2 to 4 Lns 2.22 2 4.44 $14,884,317 $3,352,324

Williamson Blvd, LPGA Blvd-Stricklland Rng Est. 2 to 4 Lns 2.00 2 0.90 $5,196,000 $5,773,333

Dunn Ave Ext., Tomoka Farms-Wllmsn Done New 2 Lns 0.74 2 1.48 $10,864,651 $7,340,980

10th St, US 1-Myrtle Ave Est. 2 to 4 Lns 0.50 2 1.00 $11,345,108 $11,345,108

Orange Camp/MLK, MLK Blvd to I-4 Est. 2 to 4 Lns 1.80 2 3.60 $11,342,198 $3,150,611

Howland Blvd, Providence Blvd-Elkcam Est. 2 to 4 Lns 2.20 2 4.40 $14,179,365 $3,222,583

Total 14.62 26.14 $95,168,820 $3,704,399 Source: Volusia County Construction Engineering, September 11, 2018.

While cost per lane-mile is a useful measure of cost that can be readily understood, the consumption-based methodology must convert this to a cost per vehicle-mile of capacity (VMC). The previous 2003 study and the unadopted 2007 study divided average lane-mile cost by the average capacity per lane. This update divides the total cost of a set of specific improvements by the vehicle-miles of capacity added by those improvements. As calculated in Table 13, the average cost of recent and planned improvements is $298 per VMC added.

Table 13. Cost per Vehicle-Mile of Capacity

New Cost/

Road Segment Miles Before After New VMC Total Cost VMC

Saxon Blvd, Kmart Entry-I-4 Ramp 1.31 26,320 44,320 18,000 23,580 $5,698,295 $242

Tymber Crk Rd, SR 40-Peruvian Ln 0.70 13,640 35,820 22,180 15,526 $9,152,093 $589

LPGA Blvd, Jimmy Ann-E of Derbyshire 1.05 14,040 37,970 23,930 25,127 $7,139,360 $284

Williamson Blvd/ Dunn Ave-LPGA Blvd 2.10 17,050 37,970 20,920 43,932 $5,367,433 $122

Howland Blvd, Courtland-SR 415 2.22 13,640 37,970 24,330 54,013 $14,884,317 $276

Williamson Blvd, LPGA Blvd-Stricklland Rng 2.00 17,050 37,970 20,920 41,840 $5,196,000 $124

Dunn Ave Ext., Tomoka Farms-Wllmsn 0.74 0 17,050 17,050 12,617 $10,864,651 $861

10th St, US 1-Myrtle Ave 0.50 14,040 37,970 23,930 11,965 $11,345,108 $948

Orange Camp/MLK, MLK Blvd to I-4 1.80 17,050 37,970 20,920 37,656 $11,342,198 $301

Howland Blvd, Providence Blvd-Elkcam 2.20 13,640 37,970 24,330 53,526 $14,179,365 $265

Total 14.62 319,782 $95,168,820 $298

Avg. Daily Capacity

Source: Miles and total costs from Table 12; capacities from Table 18 in Appendix A; new VMC is product of miles and new

capacity; cost per VMC is cost divided by new VMC.




NET COST PER SERVICE UNIT

When calculating the impact of new development on infrastructure costs, credit is given for revenue generated by new development that will be used to pay for capacity-related capital improvements. In Volusia County, capacity-expanding road improvements are funded almost exclusively with road impact fees and Federal, State and local motor fuel taxes. The County also has some debt for past road improvements in the form of bonds that are being retired with the County’s local option gas tax revenues and road impact fees.

Debt Credit

Volusia County issued $64 million in Gas Tax Revenue Bonds in 2004 to advance-fund certain capacity-expanding major roadway improvements. The County’s intention was to retire the bonds primarily with road impact fee revenue, and use local option gas tax revenues to guarantee repayment. Road impact fees paid for all of the debt service for the first five years, but have had to be supplemented with local option gas tax revenues in recent years. Given that gas taxes have been used in recent years to provide much of the funding for debt repayment, credit will be given for the remaining $27 million in outstanding road bond debt. A simple method that ensures that new development is not required to pay for existing facilities, through funds used for debt retirement, as well as new facilities through impact fees, is to calculate the credit by dividing the outstanding debt by existing VMT on the County’s major road network. This puts new development on the same footing as existing development in terms of the share of capital costs funded through debt. As shown in Table 14 below, the debt credit is $5 per VMT.

Table 14. Road Debt Credit

Outstanding Road Bond Debt Service, FY 2018 $27,061,523

÷ Existing Vehicle-Miles of Travel (VMT) 5,686,467

Debt Credit per VMT $5 Source: Outstanding debt for Gas Tax Refunding Revenue Bonds, Series

2013 due FY 2019-2024 from debt service schedule; existing VMT from

Table 18 in Appendix A.

Gas Tax Credit

New development will generate some of the gas tax revenue that will be used to fund capacity-expanding transportation improvements, and will be provided a credit against the County’s road impact fees for this anticipated future contribution. Capacity-expanding improvements for the purposes of this study include road widening, intersection, turn lane and signalization improvements, Intelligent Transportation System (ITS) and traffic operations improvements, right-of-way acquisition, railroad crossings, and related planning studies. Excluded from credit consideration are non-capacity improvements such as resurfacing or paving existing roadways, bridge maintenance and rehabilitation, drainage and landscaping improvements, rail safety improvements, sidewalks, bikeways/trails, and pedestrian overpasses.


Net Cost per Service Unit



Additional gas tax revenues generated by increased vehicular travel in Volusia County tend to be returned to the County in the form of State/Federal transportation funding and increased local option gas taxes, some of which is programmed for capacity-expanding improvements to the major roadway system. The amount of gas-tax-supported funding (other than debt repayment) for capacity-expanding major road improvements that can be anticipated over the long-term is estimated based on recent funding history, derived from the Florida Department of Transportation’s six-year work plan history and the County’s summary of the last 13 years of local option gas tax expenditures (see Appendix B for funding details). Assuming that major road improvements in Volusia County continue to receive a similar amount of State/Federal funding and County local option gas tax revenues over the long term, new development will generate the present value equivalent of $13 in capacity funding per VMT over the next 25 years, as shown in Table 15.

Table 15. Gas Tax Credit per Service Unit

FDOT Funding, 6-Year Work Plan History $45,765,880

÷Number of Years 6

Annual Federal/State Funding $7,627,647

Annual County Gas Tax Funding $2,297,708

Total Annual Funding $9,925,355

÷Annual Gallons Sold in Volusia County 238,844,286

Annual Funding per Gallon $0.0416

÷ Average Fuel Efficiency (Miles/Gallon) 22.0

Funding per Daily Vehicle-Mile $0.0019

x Days per Year 365

Annual Funding per Daily Vehicle-Mile $0.6935

x Net Present Value Factor (25 Years) 18.11

Gas Tax Funding Credit per VMT $13 Source: FDOT funding from Table 19 in Appendix B; annual County funding from

Table 20 in Appendix B; gallons sold in Volusia County from State of Florida,

Department of Revenue, “Certificate of Taxable Gallons, 2017-2018 Fiscal Year;”

average fuel efficiency for light duty vehicles in 2016 from U.S. Department of

Transportation, Bureau of Transportation Statistics; net present value factor

based on discount rate, which is the national average interest rate on 20-year

AAA municipal bonds as of July 30, 2018 from fmsbonds.com.

Net Cost per Service Unit Summary

The net cost per service unit is the cost per VMT less the debt and gas tax credits per VMT. As summarized in Table 16, the net cost per service unit is $280 per VMT.

Table 16. Net Cost per Service Unit

Road Cost per VMT $298

– Debt Credit per VMT -$5

– Gas Tax Credit per VMT -$13

Net Road Cost per VMT $280 Source: Cost per VMT from Table 13; debt credit

from Table 14; gas tax credit from Table 15.




FEE SCHEDULE

The updated road impact fees for the various land use categories are shown in Table 17. The impact fee calculation for each land use category is the product of daily VMT per development unit on the major roadway system and the net cost per VMT, which takes into account the average cost to add roadway capacity as well as future revenue that will be generated by new development to help offset those costs. A 3% fee is added to cover the cost of administering the impact fee system. The comparison of updated fees with current fees is presented in the Executive Summary.

Table 17. Updated Road Impact Fees

VMT/ Net Cost/ Net Cost/ Admin. Total

Land Use Type Unit Unit VMT Unit Fee Fee

Single-Family Detached* Dwelling 18.65 $280 $5,222 $157 $5,379

Multi-Family, 1-2 Stories Dwelling 11.14 $280 $3,119 $94 $3,213

Multi-Family, 3+ Stories Dwelling 6.76 $280 $1,893 $57 $1,950

Mobile Home/RV Park Space 6.87 $280 $1,924 $58 $1,982

Shopping Center/General Retail 1,000 sq. ft. 22.14 $280 $6,199 $186 $6,385

Bank with Drive-Through 1,000 sq. ft. 33.79 $280 $9,461 $284 $9,745

Bank without Drive-Through 1,000 sq. ft. 20.04 $280 $5,611 $168 $5,779

Quality Restaurant 1,000 sq. ft. 59.72 $280 $16,722 $502 $17,224

High-Turnover Restaurant 1,000 sq. ft. 74.30 $280 $20,804 $624 $21,428

Fast Food Restaurant 1,000 sq. ft. 164.26 $280 $45,993 $1,380 $47,373

Auto Care 1,000 sq. ft. 12.67 $280 $3,548 $106 $3,654

New and Used Car Sales 1,000 sq. ft. 28.98 $280 $8,114 $243 $8,357

Supermarket 1,000 sq. ft. 37.13 $280 $10,396 $312 $10,708

Convenience Store 1,000 sq. ft. 83.27 $280 $23,316 $699 $24,015

Super Convenience Store (10+ fuel pos.) 1,000 sq. ft. 101.93 $280 $28,540 $856 $29,396

Home Improvement Store 1,000 sq. ft. 42.57 $280 $11,920 $358 $12,278

Pharmacy with Drive-Through 1,000 sq. ft. 17.90 $280 $5,012 $150 $5,162

Furniture Store 1,000 sq. ft. 6.18 $280 $1,730 $52 $1,782

Tire Store/Auto Repair Bay 15.13 $280 $4,236 $127 $4,363

Quick Lubrication Bay 15.99 $280 $4,477 $134 $4,611

Movie Theater 1,000 sq. ft. 45.01 $280 $12,603 $378 $12,981

Hotel Room 10.31 $280 $2,887 $87 $2,974

Motel Room 4.12 $280 $1,154 $35 $1,189

General Office 1,000 sq. ft. 13.78 $280 $3,858 $116 $3,974

Corporate Headquarters Building 1,000 sq. ft. 11.23 $280 $3,144 $94 $3,238

Medical Office 1,000 sq. ft. 50.73 $280 $14,204 $426 $14,630

Light Industrial 1,000 sq. ft. 7.01 $280 $1,963 $59 $2,022

Manufacturing 1,000 sq. ft. 5.52 $280 $1,546 $46 $1,592

Warehouse 1,000 sq. ft. 2.46 $280 $689 $21 $710

Mini-Warehouse 1,000 sq. ft. 2.13 $280 $596 $18 $614

Hospital 1,000 sq. ft. 7.38 $280 $2,066 $62 $2,128

Church 1,000 sq. ft. 4.78 $280 $1,338 $40 $1,378

Day Care Center 1,000 sq. ft. 21.06 $280 $5,897 $177 $6,074

Nursing Home 1,000 sq. ft. 4.57 $280 $1,280 $38 $1,318

Major Sports Facility Pk Space 1.62 $280 $454 $14 $468

Public Park Acre 0.54 $280 $151 $5 $156 * category also includes a mobile home on a single-family lot

Source: VMT per unit from Table 9; net cost per VMT from Table 16; administrative fee is 3% of net cost per unit.




APPENDIX A: MAJOR ROAD INVENTORY

Table 18. Existing Major Roadway Inventory

Road Name Limits (From - To) Miles Lns Volume LOS Capacity VMT VMC

SR A1A - Ocean Shore Blv Flagler Co Line-High Bridge Rd 1.26 2 16,200 D 24,200 20,412 30,492

SR A1A - Ocean Shore Blv High Bridge Rd-Ormond Mall 6.42 2 16,200 D 24,200 104,004 155,364

SR A1A - Ocean Shore Blv Ormond Mall-Neptune Ave 1.69 2 16,400 D 24,200 27,716 40,898

SR A1A - Ocean Shore Blv Neptune Ave-SR 40 0.70 2 17,000 D 24,200 11,900 16,940

SR A1A - Atlantic Ave N SR 40-Harvard Dr 1.70 4 17,800 D 39,800 30,260 67,660

SR A1A - Atlantic Ave N Harvard Dr-SR430 2.53 4 17,800 D 39,800 45,034 100,694

SR A1A - Atlantic Ave N SR 430-SR430/Oakridge Blvd 0.12 4 20,800 D 39,800 2,496 4,776

SR A1A - Atlantic Ave N SR 430/Oakridge Blvd-US 92/ISB 0.90 4 16,600 D 39,800 14,940 35,820

SR A1A - Atlantic Ave S US 92-Silver Beach Ave 0.69 4 13,500 D 39,800 9,315 27,462

SR A1A - Atlantic Ave S Silver Beach Ave-Florida Shores 2.34 4 13,500 D 39,800 31,590 93,132

SR A1A - Atlantic Ave S Florida Shores-Van Ave 1.29 4 12,800 D 39,800 16,512 51,342

SR A1A - Atlantic Ave S Van Ave-SRA1A/Dunlawton Ave 1.05 4 12,600 D 39,800 13,230 41,790

SR A1A - Dunlawton Ave SR A1A/Atlantic Ave-US 1 1.25 4 22,500 D 39,800 28,125 49,750

SR 5A - Nova Rd US 1-Wilmette Ave 1.00 4 13,600 D 39,800 13,600 39,800

SR 5A - Nova Rd Wilmette Ave-SR 40 0.51 6 25,500 D 59,900 13,005 30,549

SR 5A - Nova Rd SR 40-Hand Ave 1.15 6 28,000 D 59,900 32,200 68,885

SR 5A - Nova Rd Hand Ave-LPGA Blvd 2.06 6 34,000 D 59,900 70,040 123,394

SR 5A - Nova Rd LPGA Blvd-SR 430/Mason Blvd 1.47 6 34,500 D 59,900 50,715 88,053

SR 5A - Nova Rd SR 430/Mason Ave-US 92/ISB 1.22 6 36,000 D 59,900 43,920 73,078

SR 5A - Nova Rd US 92/ISB-Bellevue Ave 1.07 6 35,000 D 59,900 37,450 64,093

SR 5A - Nova Rd Bellevue Ave-SR 400/Beville Rd 1.00 6 36,500 D 59,900 36,500 59,900

SR 5A - Nova Rd SR 400/Beville Rd-Big Tree 0.70 6 26,000 D 59,900 18,200 41,930

SR 5A - Nova Rd Big Tree-Madeline Ave 1.61 5 26,000 D 49,850 41,860 80,259

SR 5A - Nova Rd Madeline Ave-SR 421 1.30 4 27,500 D 39,800 35,750 51,740

SR 5A - Nova Rd SR 421-Spruce Creek Rd 1.08 4 29,500 D 39,800 31,860 42,984

SR 5A - Nova Rd Spruce Creek Rd-US 1 1.44 4 19,100 D 39,800 27,504 57,312

SR 11 CR 304 (in Flagler Co.)-SR 40 2.42 2 2,800 C 6,300 6,776 15,246

SR 11 SR 40-CR 15A 9.19 2 3,700 C 6,300 34,003 57,897

SR 11 CR 15A-US 17 2.45 2 6,900 D 24,200 16,905 59,290

SR 15A US 17-Glenwood Rd 1.11 4 12,200 D 37,900 13,542 42,069

SR 15A Glenwood Rd-CR 92 1.20 4 15,600 D 37,900 18,720 45,480

SR 15A CR 92-Plymouth Ave 0.83 4 25,500 D 37,900 21,165 31,457

SR 15A Plymouth Ave-SR 44 1.01 4 27,000 D 37,900 27,270 38,279

SR 15A SR 44/-Beresford Ave 1.00 4 25,500 D 37,900 25,500 37,900

SR 15A Beresford Ave-New Hampshire Ave 0.59 4 24,000 D 37,900 14,160 22,361

SR 15A New Hampshire Ave-US 17/92 1.17 4 25,000 D 37,900 29,250 44,343

SR 40 Lake County-Emporia Rd 0.86 2 8,500 C 16,400 7,310 14,104

SR 40 Emporia Rd-US 17 5.58 2 8,000 C 16,400 44,640 91,512

SR 40 US 17-SR 11 6.69 2 6,800 C 16,400 45,492 109,716

SR 40 SR 11-Pinto Lane 6.83 2 6,800 C 16,400 46,444 112,012

SR 40 Pinto Lane-Rima Ridge Rd 1.25 4 11,800 D 39,800 14,750 49,750

SR 40 Rima Ridge Rd-Tymber Creek Rd 4.36 4 35,000 D 39,800 152,600 173,528

SR 40 Tymber Creek Rd-I-95 0.79 4 35,000 D 39,800 27,650 31,442

SR 40 I-95-Clyde Morris Blvd 1.58 4 38,000 D 39,800 60,040 62,884

SR 40 Clyde Morris Blvd-SR 5A/Nova Rd 1.06 4 34,000 D 39,800 36,040 42,188

SR 40 SR5A/Nova Rd-US 1 1.33 4 32,000 D 39,800 42,560 52,934

SR 40 US 1-Halifax Ave 1.11 4 38,500 D 32,400 42,735 35,964 continued on next page


Appendix A: Major Road Inventory



Table 18. Existing Major Roadway Inventory, continued


SR 40 Halifax Ave-SR A1A 0.37 4 21,000 D 32,400 7,770 11,988

SR 44 Lake Co.-Shell Rd 1.19 2 11,000 C 16,400 13,090 19,516

SR 44 Shell Rd-Grand Ave 1.26 2 11,000 D 24,200 13,860 30,492

SR 44 Grand Ave-Old New York/Hazen Rd 0.70 2 11,200 D 24,200 7,840 16,940

SR 44 Old New York/Hazen Rd-SR 15A 0.71 2 13,200 D 24,200 9,372 17,182

SR 44 SR 15A/Spring Garden Ave-Stone St 0.50 2 11,500 E 18,939 5,750 9,470

SR 44 Stone St-Clara Ave 0.51 2 11,200 E 18,939 5,712 9,659

SR 44 Clara Ave-Amelia Ave 0.50 2 9,700 E 15,600 4,850 7,800

SR 44 Amelia Ave-Hill Ave 1.00 2 13,500 E 18,939 13,500 18,939

SR 44 Hill Ave-Blue Lake Ave 0.51 2 12,500 D 19,800 6,375 10,098

SR 44 Blue Lake Ave-Kepler Rd 0.94 2 17,500 D 20,800 16,450 19,552

SR 44 Kepler Rd-Summit Ave 1.18 2 19,400 D 19,800 22,892 23,364

SR 44 Summit Ave-I-4 0.98 4 21,500 D 39,800 21,070 39,004

SR 44 I-4-Prevatt Ave 0.74 4 21,500 D 39,800 15,910 29,452

SR 44 Prevatt Ave-Pioneer Tr 5.93 4 13,900 C 25,900 82,427 153,587

SR 44 Pioneer Tr-SR 415/CR 415 3.56 4 15,600 C 25,900 55,536 92,204

SR 44 SR 415/CR 415-Samsula Dr 1.14 4 22,000 C 25,900 25,080 29,526

SR 44 Samsula Dr-Airport Rd 1.70 4 22,000 C 25,900 37,400 44,030

SR 44 Airport Rd-I-95 2.05 4 22,000 D 39,800 45,100 81,590

SR 44 I-95-Mission Dr 2.83 4 31,500 D 39,800 89,145 112,634

SR 44 Mission Dr-Live Oak 1.35 4 18,000 D 39,800 24,300 53,730

SR 44/SR A1A/S Causewy Live Oak-Peninsula Ave 1.30 4 23,500 D 39,800 30,550 51,740

SR 44/SR A1A/S Causewy Peninsula Ave-Saxon Dr 0.35 4 25,500 D 39,800 8,925 13,930

SR 44/SR A1A Saxon Dr-6th Ave 0.50 4 17,500 D 39,800 8,750 19,900

SR 44 (Bus) - Canal St SR 44/Lytle St-Pioneer Trail 0.17 2 9,800 D 17,700 1,666 3,009

SR 44 (Bus) - Canal St Pioneer Tr-US 1 0.76 2 11,900 D 17,700 9,044 13,452

SR 44 (Old) - N Causeway Riverside Dr-Peninsula 0.14 2 9,600 D 14,800 1,344 2,072

SR 46 Seminole Co.-Brevard Co. 5.44 2 7,400 C 8,400 40,256 45,696

SR 400 - Beville Rd I-95-Williamson Blvd 0.28 4 28,500 D 39,800 7,980 11,144

SR 400 - Beville Rd Williamson Blvd-SR 483 1.91 4 30,500 D 39,800 58,255 76,018

SR 400 - Beville Rd SR 483-SR 5A/Nova Rd 0.68 4 33,000 D 39,800 22,440 27,064

SR 400 - Beville Rd SR 5A/Nova Rd-US 1 1.34 4 26,500 D 39,800 35,510 53,332

SR 415 - State Count SR 44-Acorn Lake Rd 10.49 2 12,700 C 16,400 133,223 172,036

SR 415 - State Count Acorn Lake Rd-Howland Blvd 0.88 4 7,900 D 39,800 6,952 35,024

SR 415 - State Count Howland Blvd-Enterprise-Osteen 1.83 4 17,700 D 39,800 32,391 72,834

SR 415 - State Count Enterprise-Osteen Rd-Seminole Co. 4.39 4 21,500 D 65,600 94,385 287,984

SR 421 - Dunlawton Ave Williamson-Clyde Morris Blvd 1.07 6 49,000 D 59,900 52,430 64,093

SR 421 - Dunlawton Ave Clyde Morris Blvd-SR 5A 1.31 6 42,500 D 59,900 55,675 78,469

SR 421 - Dunlawton Ave SR5A-Spruce Creek Rd 0.91 4 33,000 D 39,800 30,030 36,218

SR 421 - Dunlawton Ave Spruce Creek Rd-US 1 0.71 4 28,500 D 39,800 20,235 28,258

SR 430 - Mason Ave SR 483-SR 5A/Nova Rd 0.99 4 22,000 D 24,300 21,780 24,057

SR 430 - Mason Ave SR 5A/Nova Rd-US 1 1.08 4 22,000 D 24,300 23,760 26,244

SR 430 - Mason Ave US 1-Beach St 0.30 4 22,000 D 32,400 6,600 9,720

SR 430 - Oakridge Blv - EB Beach St-Peninsula Dr 0.70 2 6,500 D 23,880 4,550 16,716

SR 430 - Oakridge Blv - EB Peninsula Dr-SR A1A/Atlantic 0.28 2 5,400 D 23,880 1,512 6,686

SR 430 - Seabreeze - WB Beach St-Peninsula Dr 1.01 2 6,600 D 23,880 6,666 24,119

SR 430 - Seabreeze - WB Peninsula Dr-SR A1A/Atlantic 0.29 2 6,400 D 19,440 1,856 5,638

SR 441 - Peninsula Dr US 92/ISB-Silver Beach Ave 0.65 2 8,800 D 17,700 5,720 11,505

SR 441 - Peninsula Dr Silver Beach Ave-Florida Shores 2.34 2 8,800 D 17,700 20,592 41,418

SR 441 - Peninsula Dr Florida Shores-SR A1A 2.42 2 5,900 D 17,700 14,278 42,834

SR 442 - Indian River Blvd I-95-Air Park Rd 2.09 4 12,100 D 39,800 25,289 83,182 continued on next page







SR 442 - Indian River Blvd Air Park Rd-US 1 1.69 4 17,000 D 39,800 28,730 67,262

SR 472 US 17/92-CR 4101/MLK Blvd 2.31 4 24,000 D 65,600 55,440 151,536

SR 472 CR 4101/MLK Blvd-I-4 (end of SR) 1.10 4 30,000 D 39,800 33,000 43,780

SR 483 - Clyde Morris Blvd SR 430/Mason Ave-US 92 1.20 4 32,000 D 37,800 38,400 45,360

SR 483 - Clyde Morris Blvd US 92/ISB-Aviation Ctr Pkwy 1.20 4 21,000 D 37,800 25,200 45,360

SR 483 - Clyde Morris Blvd Aviation Ctr Pkwy-SR 400 0.98 4 32,000 D 37,800 31,360 37,044

Subtotal, State Roads 174.70 3,053,893 5,313,944

Atlantic Ave/Turtle Mound 6th Ave-27th Ave 1.45 4 15,900 E 37,970 23,055 55,057

Atlantic Ave/Turtle Mound 27th Ave-Hiles Blvd 1.55 2 9,600 E 17,050 14,880 26,428

Atlantic Ave/Turtle Mound Hiles Blvd-Saxon Dr 0.45 2 5,380 E 17,050 2,421 7,673

Atlantic Ave/Turtle Mound Saxon Dr-Turtle Mound Rd 1.60 2 4,850 E 17,050 7,760 27,280

Atlantic Ave/Turtle Mound Turtle Mnd Rd-Canaveral Nat'l Park 7.65 2 1,770 E 13,640 13,541 104,346

Clyde Morris Blvd SR 40-Hand Ave 0.80 4 12,460 E 30,420 9,968 24,336

Clyde Morris Blvd Hand Ave-LPGA Blvd 1.50 4 15,620 E 37,970 23,430 56,955

Clyde Morris Blvd LPGA Blvd-Bill France Blvd 1.25 4 15,910 E 37,970 19,888 47,463

Clyde Morris Blvd Bill France Blvd-Mason 0.60 4 14,750 E 37,970 8,850 22,782

Clyde Morris Blvd Beville-Big Tree Rd 0.90 4 24,140 E 37,970 21,726 34,173

Clyde Morris Blvd Big Tree Rd-Madeline Ave 1.00 4 24,230 E 37,970 24,230 37,970

Clyde Morris Blvd Madeline Ave-Willow Run Blvd 1.30 4 23,240 E 37,970 30,212 49,361

Clyde Morris Blvd Willow Run Blvd-SR 421 0.65 4 20,230 E 37,970 13,150 24,681

Clyde Morris Blvd SR 421/Dunlawton Ave-Taylor Rd 0.95 2 10,440 E 17,050 9,918 16,198

CR 15A US 17-Airport Rd 0.90 2 4,810 E 24,975 4,329 22,478

CR 15A Airport Rd-SR 11 1.25 2 2,610 E 24,975 3,263 31,219

CR 92 (Intn'l Spdwy Blvd) SR 15A-Stone St 0.25 4 14,060 E 37,970 3,515 9,493

CR 92 (Intn'l Spdwy Blvd) Stone St-US 17/92 0.75 4 15,250 E 30,420 11,438 22,815

Dirksen/DeBary/Doyle US 17/92-Sunrise Blvd 1.75 2 8,050 E 13,640 14,088 23,870

Dirksen/DeBary/Doyle Sunrise Blvd-WB I-4 Ramps 0.20 4 14,220 E 30,420 2,844 6,084

Dirksen/DeBary/Doyle WB I-4 Ramps-EB I-4 Ramps 0.20 4 22,200 E 30,420 4,440 6,084

Dirksen/DeBary/Doyle I-4-Deltona Blvd 0.10 4 36,170 E 30,420 3,617 3,042

Dirksen/DeBary/Doyle Deltona Blvd-Enterprise St 0.65 4 23,000 E 30,420 14,950 19,773

Dirksen/DeBary/Doyle Enterprise St-Main St 0.15 4 29,020 E 30,420 4,353 4,563

Dirksen/DeBary/Doyle Main St-Providence Blvd 0.80 4 26,230 E 30,420 20,984 24,336

Dirksen/DeBary/Doyle Providence Blvd-Garfield Rd 1.20 2 14,140 E 13,640 16,968 16,368

Dirksen/DeBary/Doyle Garfield Rd-Saxon Blvd 1.50 2 10,970 E 13,640 16,455 20,460

Dirksen/DeBary/Doyle Saxon Blvd-Courtland Blvd 2.55 2 9,940 E 13,640 25,347 34,782

Dirksen/DeBary/Doyle Courtland Blvd-SR 415 1.50 2 7,040 E 13,640 10,560 20,460

Dunn/Engram/Fairv./Main Williamson Blvd-Bill France Blvd 1.00 2 9,160 E 17,050 9,160 17,050

Dunn/Engram/Fairv./Main Bill France Blvd-Clyde Morris Blvd 0.85 2 10,510 E 14,040 8,934 11,934

Dunn/Engram/Fairv./Main Clyde Morris Blvd-Nova Rd 1.00 4 10,800 E 37,970 10,800 37,970

Dunn/Engram/Fairv./Main Nova Rd-US 1 1.20 4 10,750 E 30,420 12,900 36,504

Dunn/Engram/Fairv./Main US 1-Beach St 0.40 2 5,620 E 14,040 2,248 5,616

Dunn/Engram/Fairv./Main Beach St-Peninsula Dr 0.60 2 7,440 E 14,040 4,464 8,424

Dunn/Engram/Fairv./Main Peninsula Dr-SR A1A 0.35 2 6,990 E 13,640 2,447 4,774

Enterprise Rd US 17/92-Harley Strickland Blvd 0.50 4 21,970 E 30,420 10,985 15,210

Enterprise Rd Harley Strickland Blvd-Saxon Blvd 0.50 4 23,240 E 37,970 11,620 18,985

Enterprise Rd Saxon Blvd-Highbanks Rd 1.55 4 25,710 E 37,970 39,851 58,854

Enterprise Rd Highbanks Rd-Deltona Blvd 0.50 4 16,650 E 30,420 8,325 15,210

Enterprise Rd Deltona Blvd-Main St 1.10 2 8,660 E 14,040 9,526 15,444

Graves Av/CR 4145 Veteran's Mem Pkwy.-Kentucky Ave 0.30 2 19,190 E 17,900 5,757 5,370

Graves Av/CR 4145 Kentucky Ave-Howland Blvd 0.90 2 14,060 E 17,900 12,654 16,110

Howland Blvd I-4/SR 472-Wolf Pack Run 0.40 4 38,300 E 37,970 15,320 15,188 continued on next page







Howland Blvd Wolf Pack Run-Catalina Blvd 1.15 4 30,040 E 37,970 34,546 43,666

Howland Blvd Catalina Blvd-Providence Blvd 0.35 4 25,520 E 37,970 8,932 13,290

Howland Blvd Providence Blvd-Elkcam Blvd 2.10 2 18,800 E 13,640 39,480 28,644

Howland Blvd Elkcam Blvd-Lake Helen-Osteen Rd 0.30 4 18,760 E 37,970 5,628 11,391

Howland Blvd Lake Helen-Osteen Rd-Newmark Dr 0.70 4 25,290 E 37,970 17,703 26,579

Howland Blvd Newmark Dr-Courtland Blvd 1.15 4 20,200 E 37,970 23,230 43,666

Howland Blvd Courtland Blvd- Ft Smith Blvd 1.80 4 16,230 E 37,970 29,214 68,346

Howland Blvd Ft Smith Blvd-SR 415 0.65 4 18,230 E 37,970 11,850 24,681

Lake Helen-Osteen Rd Kicklighter Rd-Captain Dr 1.40 2 7,910 E 13,640 11,074 19,096

Lake Helen-Osteen Rd Captain Dr-Catalina Blvd 0.40 2 7,830 E 13,640 3,132 5,456

Lake Helen-Osteen Rd Catalina Blvd-Haulover Blvd 0.50 2 11,260 E 13,640 5,630 6,820

Lake Helen-Osteen Rd Haulover Blvd-Elkcam Blvd 1.75 2 5,490 E 13,640 9,608 23,870

Lake Helen-Osteen Rd Elkcam Blvd-Howland Blvd 0.40 2 7,430 E 13,640 2,972 5,456

LPGA Blvd US 92-Welshinger-Butler Circle 2.75 2 9,280 E 26,900 25,520 73,975

LPGA Blvd Welshinger-Butler Cir-omoka Farms 2.60 2 11,910 E 26,900 30,966 69,940

LPGA Blvd Tomoka Farms Rd-Williamson Blvd 0.65 4 31,150 E 37,970 20,248 24,681

LPGA Blvd Williamson Blvd-Clyde Morris Blvd 0.50 4 25,810 E 37,970 12,905 18,985

LPGA Blvd Clyde Morris Blvd-Jimmy Ann Dr 1.10 4 18,700 E 37,970 20,570 41,767

LPGA Blvd Jimmy Ann Dr- Derbyshire Rd 0.25 2 19,570 E 14,040 4,893 3,510

LPGA Blvd Derbyshire Rd-SR5A/Nova Rd 0.55 4 13,090 E 30,420 7,200 16,731

LPGA Blvd SR5A/Nova Rd-US 1 1.10 2 9,210 E 14,040 10,131 15,444

Mason Ave Williamson Blvd-Fentress Blvd 0.60 2 11,210 E 17,900 6,726 10,740

Mason Ave Fentress Blvd-Bill France Blvd 0.50 2 12,300 E 17,900 6,150 8,950

Mason Ave Bill France Blvd-Jimmy Ann Dr 0.30 4 13,800 E 37,970 4,140 11,391

Mason Ave Jimmy Ann Dr-SR 483 0.50 4 13,710 E 37,970 6,855 18,985

Orange/Silver Bch Ave US 1-Beach St 0.20 4 8,950 E 30,420 1,790 6,084

Orange/Silver Bch Ave Beach St-City Island Pkwy. 0.20 4 11,060 E 30,420 2,212 6,084

Orange/Silver Bch Ave City Island Pkwy.-Peninsula Dr 0.60 2 10,960 E 14,040 6,576 8,424

Orange/Silver Bch Ave Peninsula Dr-SR A1A 0.30 2 6,000 E 14,040 1,800 4,212

Orange Camp Rd US 17/92-Princeton 0.75 2 12,370 E 14,040 9,278 10,530

Orange Camp Rd Princeton.-Blue Lake Ave 0.90 2 12,270 E 17,050 11,043 15,345

Orange Camp Rd Blue Lake Ave-W Volusia Bltwy 0.55 2 12,650 E 17,050 6,958 9,378

Orange Camp Rd W Volusia Bltwy (Dr MLK Jr)-I-4 1.00 2 13,080 E 17,050 13,080 17,050

Prevatt Ave SR 44-Lake Pearl Dr 1.80 2 5,510 E 17,050 9,918 30,690

Prevatt Ave Lake Pearl Dr-Kicklighter Rd 1.50 2 5,070 C 17,050 7,605 25,575

Providence Blvd Howland Blvd-Elkcam Blvd 1.70 2 10,230 E 14,040 17,391 23,868

Providence Blvd Elkcam Blvd-Ft Smith Blvd 0.80 2 13,590 E 13,640 10,872 10,912

Providence Blvd Ft Smith Blvd-Tivoli Dr 0.05 4 18,450 E 30,420 923 1,521

Providence Blvd Tivoli Dr-Saxon Blvd 0.80 2 7,630 E 14,740 6,104 11,792

Providence Blvd Saxon Blvd-Normandy Blvd 0.70 2 8,270 E 13,640 5,789 9,548

Providence Blvd Normandy Blvd-Anderson Dr 0.80 2 13,670 E 13,640 10,936 10,912

Providence Blvd Anderson Dr-Doyle Rd 0.55 2 13,130 E 13,640 7,222 7,502

Saxon Blvd US 17/92-Enterprise Rd 0.65 4 14,620 E 30,420 9,503 19,773

Saxon Blvd Enterprise Rd-Veterans Mem Pkwy 0.60 6 31,840 E 47,560 19,104 28,536

Saxon Blvd VMP-FDOT Park & Ride 0.30 6 43,680 E 47,560 13,104 14,268

Saxon Blvd FDOT Park & Ride-I-4 0.30 6 44,320 E 37,970 13,296 11,391

Saxon Blvd I-4-Finland Dr 0.35 4 45,090 E 37,970 15,782 13,290

Saxon Blvd Finland Dr-Normandy Blvd 0.35 4 37,630 E 37,970 13,171 13,290

Saxon Blvd Normandy Blvd-Tivoli Dr 1.25 4 26,320 E 37,970 32,900 47,463 continued on next page







Saxon Blvd Tivoli Dr-Providence Blvd 0.90 2 10,220 E 13,640 9,198 12,276

Taylor Rd Tomoka Farms Rd-Spruce Creek Blvd 0.70 2 8,220 E 17,050 5,754 11,935

Taylor Rd Spruce Creek Blvd-Crane Lake Blvd 1.10 2 10,880 E 17,050 11,968 18,755

Taylor Rd Crane Lake Blvd-Summertree Rd 0.75 2 16,120 E 17,050 12,090 12,788

Taylor Rd Summertree Rd-Williamson Blvd 0.20 4 15,530 E 37,970 3,106 7,594

Taylor Rd Williamson Blvd-I-95 (at Dunlawton) 0.15 5 41,380 E 47,560 6,207 7,134

Taylor Rd US 17/92-Stratford Dr 0.80 2 7,020 E 13,640 5,616 10,912

Taylor Rd Stratford Dr-Blue Lake Ave 0.95 2 5,740 E 17,050 5,453 16,198

Taylor Rd Blue Lake Ave-MLK Bltwy 0.80 2 5,980 E 13,640 4,784 10,912

Tomoka Farms Rd US 92-Shunz Rd 3.02 2 7,040 E 24,975 21,261 75,425

Tomoka Farms Rd Shunz Rd-Townwest Blvd 1.50 2 7,840 E 24,975 11,760 37,463

Tomoka Farms Rd Townwest Blvd-Taylor Rd 1.45 2 7,560 E 24,975 10,962 36,214

Tomoka Farms Rd Taylor Rd- Pioneer Tr 2.80 2 10,670 E 24,975 29,876 69,930

Tomoka Farms Rd Pioneer Tr-SR 44 2.20 2 6,190 C 12,300 13,618 27,060

W. Volusia Bltwy US 92-Minnesota Ave 1.85 2 14,760 E 17,050 27,306 31,543

W. Volusia Bltwy Minnesota Ave-SR 44 0.75 2 16,250 E 17,050 12,188 12,788

W. Volusia Bltwy SR 44-Beresford Ave Ext. 0.75 2 10,990 E 17,050 8,243 12,788

W. Volusia Bltwy Beresford Ave Ext.-Taylor Rd 1.10 2 10,360 E 17,050 11,396 18,755

W. Volusia Bltwy Taylor Rd-Orange Camp Rd 1.00 2 12,670 E 17,050 12,670 17,050

W. Volusia Bltwy Orange Camp Rd-Cassadaga Rd 1.40 2 11,130 E 17,050 15,582 23,870

W. Volusia Bltwy Cassadaga Rd-SR 472 0.20 2 12,570 E 17,050 2,514 3,410

W. Volusia Bltwy Graves Ave-Rhode Island Ave 1.50 2 14,420 E 17,900 21,630 26,850

W. Volusia Bltwy Rhode Is Ave-Harley Strickland Blvd 1.22 2 19,290 E 17,050 23,534 20,801

W. Volusia Bltwy Harley Strickland Blvd-Saxon Blvd 0.38 4 14,020 E 37,970 5,328 14,429

Williamson Blvd SR 40-Hand Ave 0.60 4 20,280 E 37,970 12,168 22,782

Williamson Blvd Hand Ave-LPGA Blvd 2.05 2 14,290 E 17,050 29,295 34,953

Williamson Blvd LPGA Blvd-Mason Ave 0.35 4 16,880 E 37,970 5,908 13,290

Williamson Blvd Mason Ave-Dunn Ave 0.35 4 16,010 E 37,970 5,604 13,290

Williamson Blvd Dunn Ave-US 92 2.35 4 17,570 E 37,970 41,290 89,230

Williamson Blvd US 92-Midway Ave 0.50 4 12,150 E 37,970 6,075 18,985

Williamson Blvd Midway Ave-Bellevue Ave Ext. 0.50 4 17,220 E 37,970 8,610 18,985

Williamson Blvd Bellevue Ave Ext.-SR 400 1.00 4 19,120 E 37,970 19,120 37,970

Williamson Blvd SR400/Beville Rd-Madeline Ave 1.50 2 16,850 E 17,050 25,275 25,575

Williamson Blvd Madeline Ave-Willow Run Blvd 1.10 2 17,200 E 17,050 18,920 18,755

Williamson Blvd Willow Run Blvd Townwest Blvd 0.25 2 16,950 E 17,050 4,238 4,263

Williamson Blvd Townwest Blvd-Taylor Rd 2.75 4 18,620 E 37,970 51,205 104,418

Williamson Blvd Taylor Rd-Spruce Creek Bridge 0.80 4 22,830 E 37,970 18,264 30,376

Williamson Blvd Spruce Creek Bridge-Airport Rd 1.00 4 19,650 D 35,820 19,650 35,820

Subtotal, County Arterial Roads 130.17 1,708,497 3,082,243

Air Park Rd Park Ave-Ragis Rd 0.87 2 2,470 E 24,975 2,149 21,728

Air Park Rd Ragis Rd-SR 442 0.55 2 2,630 E 24,975 1,447 13,736

Airport Rd Tymber Creek Rd-Pineland Tr 2.05 2 6,660 E 24,975 13,653 51,199

Airport Rd Pineland Tr-Sunshine Blvd 1.40 2 5,400 E 24,975 7,560 34,965

Airport Rd Sunshine Blvd-US 1 0.30 2 6,260 E 24,975 1,878 7,493

Airport Rd Williamson Blvd-Pioneer Tr 2.50 2 7,590 E 33,300 18,975 83,250

Airport Rd (NSB) Pioneer Tr. to Luna Bella Ln 1.65 2 7,590 E 34,965 12,524 57,692

Airport Rd (NSB) Luna Bella Ln to SR 44 1.80 2 7,590 E 34,965 13,662 62,937

Amelia Ave US 92-Plymouth Ave 0.85 2 7,050 E 14,040 5,993 11,934 continued on next page







Amelia Ave Plymouth Ave-Minnesota Ave 0.50 2 11,500 E 14,040 5,750 7,020

Amelia Ave Minnesota Ave-Ohio Ave 0.15 2 11,140 E 13,640 1,671 2,046

Amelia Ave Ohio Ave-SR 44 0.15 4 11,250 E 22,820 1,688 3,423

Arredondo Grant Rd Spg Grdn Ranch Rd-James St 0.60 2 1,150 C 6,300 690 3,780

Arredondo Grant Rd James St-SR 11 2.00 2 780 C 6,300 1,560 12,600

Atlantic Ave SR A1A/Dunlawton Ave-Phillis Ave 0.40 4 13,540 E 30,420 5,416 12,168

Atlantic Ave Phillis Ave-Marcelle Ave 0.75 2 12,330 E 14,740 9,248 11,055

Atlantic Ave Marcelle Ave-Major St 1.30 2 9,720 E 13,640 12,636 17,732

Atlantic Ave Major St-Beach St 2.80 2 3,420 E 13,640 9,576 38,192

Beach/Riverside/Beach Pine Tree Dr-Inglesa Ave 1.10 2 2,140 E 13,640 2,354 15,004

Beach/Riverside/Beach Inglesa Ave-Wilmette Ave 2.55 2 5,410 E 13,640 13,796 34,782

Beach/Riverside/Beach Wilmette Ave-SR 40 0.70 2 7,800 E 13,640 5,460 9,548

Beach/Riverside/Beach SR 40-Division Ave 0.60 2 6,940 E 13,640 4,164 8,184

Beacon Light Rd Volco Rd-Ariel Rd 1.25 2 520 C 6,300 650 7,875

Beacon Light Rd Ariel Rd-Halifax Ave 2.75 2 250 C 6,300 688 17,325

Bellevue Ave Extension CR 415 -Williamson Blvd 0.50 2 6,100 E 13,640 3,050 6,820

Bellevue Ave Extension Williamson Blvd-SR 483 2.50 2 3,160 E 13,640 7,900 34,100

Beresford Ave Beresford Rd-Fatio Rd 0.70 2 2,110 E 13,640 1,477 9,548

Beresford Ave Fatio Rd-SR 15A 1.30 2 4,160 E 13,640 5,408 17,732

Beresford Ave SR 15A-US 17/92 1.75 2 5,210 E 13,640 9,118 23,870

Beresford Ave US 17/92-Amelia Ave 0.25 2 10,480 E 14,740 2,620 3,685

Beresford Ave Amelia Ave-Hill Ave 1.00 2 7,090 E 17,900 7,090 17,900

Beresford Ave Hill Ave-Blue Lake Ave 1.35 2 4,440 E 13,640 5,994 18,414

Big Tree Rd Clyde Morris Blvd-Nova Rd 1.10 2 5,850 E 13,640 6,435 15,004

Big Tree Rd Nova Rd-Magnolia Ave 0.40 2 13,190 E 14,740 5,276 5,896

Big Tree Rd Magnolia Ave-Kenilworth Ave 0.45 3 11,380 E 14,740 5,121 6,633

Big Tree Rd Kenilworth Ave-US 1 0.55 3 8,110 E 14,740 4,461 8,107

Blue Lake Ave Plymouth Ave-Minnesota Ave 1.00 2 6,750 E 13,640 6,750 13,640

Blue Lake Ave Minnesota Ave-SR 44 0.55 2 5,380 E 13,640 2,959 7,502

Blue Lake Ave SR 44-Voorhis Ave 0.25 2 3,900 E 13,640 975 3,410

Blue Lake Ave Voorhis Ave-Beresford Ave 0.75 2 4,610 E 13,640 3,458 10,230

Blue Lake Ave Beresford Ave-Taylor Rd 1.05 2 6,910 E 13,640 7,256 14,322

Blue Lake Ave Taylor Rd-Orange Camp Rd 1.05 2 5,140 E 17,050 5,397 17,903

Cassadaga Rd W. Volusia Bltwy.-Macy Ave 1.80 2 2,500 E 13,640 4,500 24,552

CR 3 US 17-Washington Ave 2.20 2 1,100 C 12,300 2,420 27,060

CR 3 Washington Ave-Emporia Rd 1.20 2 2,300 C 12,300 2,760 14,760

CR 3 Emporia Rd-SR 40 3.40 2 1,030 C 12,300 3,502 41,820

CR 3 SR 40-Lake Winona Rd 5.04 2 850 C 12,300 4,284 61,992

CR 3 Lk Winona Rd-Ponce DeLeon Blvd 0.45 2 850 E 12,740 383 5,733

CR 305 (Bunnell Rd) US 17-Cowart Rd 1.50 2 1,750 C 6,300 2,625 9,450

CR 305 (Bunnell Rd) Cowart Rd-Flagler Co. 3.00 2 1,270 C 6,300 3,810 18,900

Cow Creek Rd SR 442-Volco Rd 3.50 2 800 C 6,300 2,800 22,050

Daugharty Rd (S. End) Marsh Rd-SR 11 0.80 2 500 C 6,300 400 5,040

Derbyshire Rd Flomich St-LPGA Blvd 0.75 2 7,300 E 13,640 5,475 10,230

Dunn/Engram/Fairv./Main Tomoka Farms Rd-Williamson Blvd 0.75 2 3,540 E 17,050 2,655 12,788

Emporia Rd SR 40-Peterson/Blackburn 3.00 2 860 C 6,300 2,580 18,900

Emporia Rd Peterson/Blackburn-US 17 1.45 2 1,220 C 6,300 1,769 9,135

Enterprise Ave (NSB) Pioneer Tr. to Halleck St 0.10 2 9,760 E 13,640 976 1,364 continued on next page







Enterprise-Osteen Rd Providence-Garfield Rd 1.50 2 3,360 E 10,220 5,040 15,330

Enterprise-Osteen Rd Garfield Rd-Reed Ellis Rd 1.70 2 2,930 E 10,220 4,981 17,374

Enterprise-Osteen Rd Reed Ellis Rd-SR 415 2.50 2 1,360 E 10,220 3,400 25,550

Flomich St Derbyshire Rd-SR 5A/Nova Rd 0.30 2 5,470 E 13,640 1,641 4,092

French Ave Lawton Ave/Hamitlon-US 17/92 1.00 2 4,870 E 13,640 4,870 13,640

Garfield Ave US 92-Plymouth Ave 0.85 2 2,760 E 13,640 2,346 11,594

Garfield Ave Plymouth Ave-SR 44 1.00 2 2,270 E 13,640 2,270 13,640

Garfield Rd Doyle Rd-Enterprise-Osteen Rd 0.90 2 2,130 E 13,640 1,917 12,276

Glenwood Rd Grand Ave-SR 15A 1.60 2 4,120 E 13,640 6,592 21,824

Glenwood Rd SR 15A-US 17 1.25 2 2,260 E 13,640 2,825 17,050

Grand Av/CR 4053 Retta St-Lemon St 1.80 2 1,860 E 13,640 3,348 24,552

Grand Av/CR 4053 Lemon St-Glenwood Rd 1.30 2 4,020 E 14,740 5,226 19,162

Grand Av/CR 4053 Glenwood Rd-Plymouth Ave 2.10 2 2,310 E 12,300 4,851 25,830

Grand Av/CR 4053 Plymouth Ave-Minnesota Ave 0.50 2 1,530 E 13,640 765 6,820

Grand Av/CR 4053 Minnesota Ave-SR 44 0.90 2 3,010 E 13,640 2,709 12,276

Grand Av/CR 4053 SR 44-Old New York Ave 0.60 2 1,230 E 13,640 738 8,184

Graves Av/CR 4145 US 17/92-Leavitt Ave 0.50 2 6,270 E 14,740 3,135 7,370

Graves Av/CR 4145 Leavitt Ave-Veteran's Mem Pkwy 1.20 2 7,410 E 13,640 8,892 16,368

Halleck St Wayne Ave-Enterprise Ave 0.20 2 6,940 E 13,640 1,388 2,728

Hand Ave Williamson Blvd-Clyde Morris Blvd 1.25 2 6,880 E 17,050 8,600 21,313

Hand Ave Clyde Morris Blvd-Shangri La Dr 0.75 2 16,690 E 13,640 12,518 10,230

Hand Ave Shangri La Dr-Nova Rd 0.25 4 17,270 E 37,970 4,318 9,493

Hazen Rd Mercers Fernery Rd-Plymouth Ave 1.50 2 910 E 13,640 1,365 20,460

Hazen Rd Plymouth Ave-SR 44 1.00 2 1,680 E 13,640 1,680 13,640

Highbridge Rd Walter Boardman-John Anderson 1.60 2 2,210 C 12,300 3,536 19,680

Highbridge Rd John Anderson Dr-SR A1A 0.20 2 2,120 E 13,640 424 2,728

Hill Ave/Jacobs Rd US 92-Plymouth Ave 0.85 2 7,510 E 13,640 6,384 11,594

Hill Ave SR 44-Voorhis Ave 0.25 2 3,150 E 13,640 788 3,410

Hill Ave Voorhis Ave-Beresford Ave 0.75 2 2,780 E 13,640 2,085 10,230

Hill Ave Beresford Ave-Taylor Rd 1.00 2 1,030 E 13,640 1,030 13,640

John Anderson Dr Highbridge Rd-Lynnhurst 7.40 2 4,080 E 13,640 30,192 100,936

John Anderson Dr Lynnhurst-Halifax Dr 0.85 2 5,520 E 13,640 4,692 11,594

John Anderson Hwy. Walter Boardman Lane-Flagler Co. 1.00 2 1,170 C 12,300 1,170 12,300

Josephine St/10th St Old Mission Rd-Tatum Blvd 0.30 2 6,230 E 13,640 1,869 4,092

Kicklighter Rd Macy Ave-Lk Helen-Osteen 0.75 2 2,100 E 13,640 1,575 10,230

Children's Way/Lakeshore Main St-Providence Blvd 0.70 2 1,000 E 13,640 700 9,548

Lakeshore Dr Providence Blvd-Garfield Rd 0.45 2 3,180 E 13,640 1,431 6,138

Lakeview Dr Main St-Ohio Ave 0.50 2 4,330 C 13,640 2,165 6,820

Lake Winona Rd SR 40-Blackwelder Rd 3.70 2 170 C 6,300 629 23,310

Lake Winona Rd Blackwelder Rd-US 17 2.25 2 980 C 6,300 2,205 14,175

Lake Winona Rd US 17-CR 3 0.15 2 290 C 6,300 44 945

Macy Ave Ohio St-Cassadaga Rd 0.75 2 1,500 C 13,640 1,125 10,230

Main St Jacob Brock Ave-DeBary Ave 0.35 2 2,750 E 13,640 963 4,774

Main St I-4-Lakeview Dr 0.95 2 8,420 C 13,640 7,999 12,958

Marsh Rd Daugharty Rd-Carter Rd 3.00 2 920 C 12,300 2,760 36,900

Marsh Rd Carter Rd-US 92 2.05 2 2,700 E 13,640 5,535 27,962

Maytown Rd/Halifax Ave Beacon Light Rd-US 1 1.10 2 1,780 C 12,300 1,958 13,530

McGregor Rd Westside Con.-Spring Garden Ave 0.70 2 2,040 E 13,640 1,428 9,548

McGregor Rd Spring Garden Ave- US17/92 1.40 2 4,650 E 13,640 6,510 19,096 continued on next page







Mercers Fernery Rd Glenwood Rd-SR 15A 1.45 2 980 E 13,640 1,421 19,778

Mercers Fernery Rd SR 15A-US 17 1.25 2 1,570 E 13,640 1,963 17,050

Midway Ave Williamson Blvd-US 92 2.00 4 3,220 E 37,970 6,440 75,940

Minnesota Ave Grand Ave-SR 15A 1.35 2 3,500 E 13,640 4,725 18,414

Minnesota Ave SR 15A-US 17/92 1.25 2 1,290 E 13,640 1,613 17,050

Minnesota Ave Amelia Ave-Hill Ave 0.75 2 2,280 E 13,640 1,710 10,230

Minnesota Ave Hill Ave-Blue Lake Ave 0.50 2 2,630 E 13,640 1,315 6,820

Minnesota Ave Blue Lake Ave-Kepler Rd 0.85 2 4,890 E 13,640 4,157 11,594

Ohio Ave Macy Ave-Lakeview Dr 0.20 2 900 C 13,640 180 2,728

Old Dixie Hwy. I-95-Old Kings Rd 0.60 2 8,890 E 13,640 5,334 8,184

Old Dixie Hwy. Old Kings Rd-Walter Boardman Ln 0.55 2 4,230 E 13,640 2,327 7,502

Old Dixie Hwy. Walter Boardman Ln-Pine Tree Dr 5.10 2 2,490 E 13,640 12,699 69,564

Old Dixie Hwy. Pine Tree Dr- Ingelsia 0.50 2 2,040 E 13,640 1,020 6,820

Old Kings Rd Flagler Co.-Old Dixie Hwy. 0.60 2 3,880 E 13,640 2,328 8,184

Old Mission Rd SR 44/Mission Dr-Old Mission Rd 0.60 2 1,330 E 13,640 798 8,184

Old New York Ave SR 44-Hontoon Rd 1.40 2 1,130 C 12,300 1,582 17,220

Old New York Ave Hontoon Rd-Lakeview Dr 0.40 2 3,870 C 13,640 1,548 5,456

Old New York Ave Lakeview Dr-Grand Ave 0.50 2 4,630 E 13,640 2,315 6,820

Old New York Ave Grand Ave-SR 44 0.91 2 3,100 E 13,640 2,821 12,412

Park Ave Old Mission Rd-Air Park Rd 0.90 2 4,280 E 13,640 3,852 12,276

Park Ave Air Park Rd-US 1 1.40 2 7,640 E 14,740 10,696 20,636

Pioneer Tr SR 44-Tomoka Farms Rd 4.00 2 4,780 C 12,300 19,120 49,200

Pioneer Tr Tomoka Farms Rd Airport Rd 1.40 2 4,830 E 13,640 6,762 19,096

Pioneer Tr Airport Rd-Turnbull Bay Rd 2.50 2 5,020 E 13,640 12,550 34,100

Pioneer Tr Turnbull Bay Rd-Sugar Mill Dr 1.75 2 4,470 E 13,640 7,823 23,870

Pioneer Tr Sugar Mill Dr-Williams Rd 1.45 2 8,130 E 13,640 11,789 19,778

Pioneer Tr Williams Rd-Enterprise Ave 1.05 2 7,810 E 13,640 8,201 14,322

Pioneer Tr Enterprise Ave-Jungle Rd 0.50 2 8,190 E 13,640 4,095 6,820

Pioneer Tr Jungle Rd-Canal St 0.25 2 2,300 E 13,640 575 3,410

Mission Dr SR 44-Old Mission Rd 0.75 4 13,300 E 37,970 9,975 28,478

Old Mission/Mission Rd Old Mission Rd-Josephine St 0.75 4 13,280 E 37,970 9,960 28,478

Old Mission Rd Josephine St-Park Ave 1.70 2 7,070 E 10,220 12,019 17,374

Old Mission Rd Park Ave-SR 442 2.00 2 4,210 E 13,640 8,420 27,280

Plymouth Ave Grand Ave-Hazen Rd 1.00 2 1,120 E 13,640 1,120 13,640

Plymouth Ave Hazen Rd-SR 15A 0.75 2 5,380 E 13,640 4,035 10,230

Plymouth Ave SR 15A-Stone St 0.50 2 9,160 E 13,640 4,580 6,820

Plymouth Ave Stone St-Clara Ave 0.50 2 10,020 E 13,640 5,010 6,820

Plymouth Ave Clara Ave- US 17/92 0.20 2 12,020 E 14,040 2,404 2,808

Plymouth Ave US 17/92-Amelia Ave 0.20 2 8,820 E 14,040 1,764 2,808

Plymouth Ave Amelia Ave-Garfield Ave 0.20 2 6,540 E 13,640 1,308 2,728

Plymouth Ave Garfield Ave-Blue Lake Rd 0.75 2 5,910 E 13,640 4,433 10,230

Ponce DeLeon Blvd CR 3-US 17 0.85 2 1,670 E 13,640 1,420 11,594

Reed Canal Rd Clyde Morris Blvd-SR5A/Nova Rd 0.80 2 7,050 E 13,640 5,640 10,912

Reed Canal Rd SR5A/Nova Rd-Sauls St 0.65 2 9,920 E 13,640 6,448 8,866

Reed Canal Rd Sauls St-US 1 0.90 2 8,530 E 13,640 7,677 12,276

Reed Ellis Rd Enterprise-Osteen Rd-SR 415 2.10 2 2,380 E 13,640 4,998 28,644

Retta St Grand Ave-US 17 0.15 2 820 E 13,640 123 2,046

Reynolds Rd US 17-SR 11 4.40 2 1,110 E 6,300 4,884 27,720

Rhode Island Ave Westside Connector-Sparkman Ave 0.45 2 7,160 E 14,740 3,222 6,633

Rhode Island Ave Sparkman Ave-Carpenter Ave 0.25 2 8,510 E 14,740 2,128 3,685

Rhode Island Ave Carpenter Ave-US 17/92 0.25 2 7,970 E 14,740 1,993 3,685 continued on next page







Samsula Dr Pioneer Tr-SR 44 2.60 2 1,550 C 12,300 4,030 31,980

Saxon Blvd Providence Blvd-Normandy Blvd 0.70 2 7,810 E 13,640 5,467 9,548

Saxon Blvd Normandy Blvd-Doyle Rd 1.00 2 5,980 E 13,640 5,980 13,640

Spring Garden Ave Beresford Ave-Beresford Rd West 0.60 2 2,120 E 13,640 1,272 8,184

Spring Garden Ave Beresford Rd West-McGregor Rd 0.90 2 2,620 E 13,640 2,358 12,276

Spring Gdn Ranch Rd US 17-Aragon Ave 0.20 2 3,180 E 13,640 636 2,728

Spruce Creek Rd Commonwealth Blvd-SR5A/Nova Rd 0.50 2 9,180 E 13,640 4,590 6,820

Spruce Creek Rd SR5A/Nova Rd-Taylor Rd 0.75 4 15,910 E 37,970 11,933 28,478

Stone St Mercers Fernery Rd-CR 92/ISB 0.70 2 640 E 13,640 448 9,548

Stone St CR 92-Plymouth Ave 0.80 2 5,160 E 13,640 4,128 10,912

Sugar Mill Dr Pioneer Tr-SR 44 1.30 2 3,320 E 13,640 4,316 17,732

Summit Ave SR 44-Main St 2.20 2 2,710 E 13,640 5,962 30,008

Taylor Rd Dunlawton Ave-Clyde Morris Blvd 0.55 2 14,100 E 13,640 7,755 7,502

Taylor Rd Clyde Morris Blvd- Hensel Rd 0.50 4 20,250 E 37,970 10,125 18,985

Taylor Rd Hensel Rd Spruce Creek Rd 1.00 4 15,930 E 37,970 15,930 37,970

Tomoka Farms Rd LPGA Blvd (north end)-Dunn Ave 1.90 2 5,430 E 24,975 10,317 47,453

Tomoka Farms Rd Dunn Ave-US 92 1.90 2 7,870 E 24,975 14,953 47,453

Turnbull Bay Rd Pioneer Tr-Williams Rd 2.90 2 3,840 E 13,640 11,136 39,556

Turnbull Bay Rd Williams Rd-Industrial Park Ave 1.20 2 4,140 E 13,640 4,968 16,368

Turnbull Bay Rd Industrial Park Ave-US 1 0.85 2 4,930 E 13,640 4,191 11,594

Tymber Creek Rd Broadway Ave/US 1-Airport Rd 4.20 2 2,730 E 13,640 11,466 57,288

Tymber Creek Rd Airport Rd-Tymber Run 0.90 2 10,810 E 17,050 9,729 15,345

Tymber Creek Rd Tymber Run-SR 40 0.50 4 14,720 E 17,050 7,360 8,525

Tymber Creek Rd SR 40-Riverbend Rd 0.45 2 550 E 13,640 248 6,138

Volco Rd Cow Creek Rd-Beacon Light Rd 2.50 2 290 C 6,300 725 15,750

Volco Rd Beacon Light Rd-35th St 1.40 2 530 E 13,640 742 19,096

Volco Rd 35th St-US 1 0.50 2 1,730 E 13,640 865 6,820

Voorhis Ave US 17/92-Amelia Ave 0.20 2 4,270 E 13,640 854 2,728

Voorhis Ave Amelia Ave-Hill Ave 1.00 2 3,310 E 13,640 3,310 13,640

Voorhis Ave Hill Ave-Blue Lake Ave 0.50 2 3,280 E 13,640 1,640 6,820

Voorhis Ave Blue Lake Ave-SR 44 0.50 2 3,610 E 13,640 1,805 6,820

Wallace Rd Canal St-SR 44 0.25 3 7,230 E 14,740 1,808 3,685

Walter Boardman Ln Old Dixie Hwy.-Highbridge Rd 1.20 2 2,890 C 12,300 3,468 14,760

Wayne Ave Halleck St-US 1 1.00 2 7,030 E 13,640 7,030 13,640

Westside Pkwy S of SR 44-Beresford Ave 1.00 2 90 E 13,640 90 13,640

Westside Pkwy Beresford Ave-McGregor Rd 2.00 2 1,960 E 13,640 3,920 27,280

Westside Pkwy Hamilton Ave (N end)-French Ave 1.20 2 2,590 E 13,640 3,108 16,368

W. Volusia Bltwy SR 472-Graves Ave 0.80 2 10,350 E 17,050 8,280 13,640

Williamson Blvd Airport Rd-Pioneer Trail 3.00 4 4,110 D 35,820 12,330 107,460

Subtotal, County Collector Roads 236.67 924,077 3,396,713

Total Major Roadway System 541.54 5,686,467 11,792,900 Note: Interstates, U.S. highways, municipal roads, and collectors that don’t provide regional connectivity have been excluded.

Source: Volusia County Traffic Engineering, July 2, 2018; LOS is the worst LOS allowable, not the existing LOS; VMT is vehicle-miles of travel,

calculated as the product of miles and volume; VMC is vehicle-miles of capacity, calculated as product of miles and capacity.




APPENDIX B: ROADWAY FUNDING

Table 19. Federal/State Capacity Funding, 2013-2018

Description Type of Work 6-Year Total

SR 5/US 1 @ 3rd St Traffic Signals $95,722

SR 5/US 1 @ SR 5A (Nova Rd) Add Left Turn Lanes $53,658

SR 5/US 1, N of Falcon Ave-N of Lamont St Traffic Ops Improvement $1,328,765

SR 5/US 1 @ US 1/SR 430 & US 1/SR 40 Intersection Improvement $11,776

SR 5/US 1 @ Big Tree Rd Intersection Improvement $895,495

SR 5/US 1 @ Canal St Intersection Improvement $1,449,829

SR 5/US 1 @ Reed Canal Rd Intersection Improvement $1,719,187

SR 5/US 1, 6th St-Flomich St Traffic Signal Update $726,030

SR 5/US 1 @ SR 421 & Herbert St Intersection Improvement $724,402

SR 5/US 1 @ LPGA Blvd Intersection Improvement $761,121

SR 5A/Nova Rd @ Division Ave & SR 40 Traffic Signals $179,754

SR 5A/Nova Rd, SR 40-US 1 Corridor Plan $74,825

SR 40, Lake Co Line to SR 15/US 17 PD&E/EMO Study $9,913

SR 44 @ Airport Rd Traffic Signals $267,680

SR 44 @ Grand Ave Roundabout $2,385,693

SR 44, Airport Rd-E 3rd Ave Traffic Control Devices $217,476

SR 44, Eddie Rd-3rd Ave Traffic Signals $1,439,782

SR 44, Palmetto St-Live Oak St Traffic Signals $395,665

SR 44 @ Kepler Rd Intersection ROW $2,000,000

SR 400, Highland Ave-Mainland HS Entrance Traffic Signals $237,668

SR 400/I-4 Interchange Off Ramp to Saxon Blvd Interchange Improvement $2,096,194

SR 400 (Belville Rd) Add Turn Lanes/Drainage $362,000

SR 415, Reed Ellis Rd-0.3 Mi N of Acorn Lake Add Lanes & Reconstruct $2,568,825

SR 430, SR 5A-E of Sherry Dr Add Left Turn Lanes $360,371

SR 472 @ Minnesota Ave Add Left Turn Lanes $172,391

SR 483 (Clyde Morris), SR 400-SR 600/US 2 Add Lanes & Rehab Pavement $460,140

SR 483 (Clyde Morris Blvd) @ Herbert St Add Turn Lanes $267,447

SR 600/US 92 @ West Parkway Traffic Signals $83

SR 600/US 92 @ Palmetto Ave Intersection Improvement $540,406

SR 600/US 92, Midway Ave-Adams St Traffic Signals $661,919

SR 600/US 92, SR 5A-Lincoln St Urban Corridor Imp. $3,447,888

SR 600/US 92 @ Williamson Blvd Traffic Signals $170,264

SR 600/US 92, I-4 Ramp-Tomoka Farms Rd Add Lanes & Reconstruct $2,453,622

SR 600 @ Hilton Ave Traffic Signals $160,096

SR 600/US 92 @ SR 5A (Nova Rd) Add Left Turn Lanes $993,297

SR 600/US 92 Improvements in Daytona Bch Corridor Plan & Roundabouts $244,080

SR A1A, Mast Arm at Cardinal Dr Traffic Signals $299,612

SR A1A @ Lynnhurst Intersection Improvement $212,688

SR A1A @ Harvard Dr Traffic Signal Update $244,240

Catalina Blvd @ Howland Blvd Add Turn Lanes $372,803

Howland Blvd, Courtland Blvd-N of SR 415 Add Lanes & Reconstruct $9,740,320

LPGA Blvd, Jimmy Anne Dr-Derbyshire Rd Widen/Resurface Ex Lns $2,040,737

LPGA Blvd @ I-95 Interchange Interchange Improvement $1,289,098

Orange Ave, SR 5A (Nova)-Beach Rd Traffic Signal Update $1,474,218

Providence Blvd @ Tivoli Dr Add Turn Lanes $158,700

Total $45,765,880 Source: Capacity-expanding expenditures from Florida Department of Transportation (FDOT), Six Year Work

Program History, 2013-2018 (https://fdotewp1.dot.state.fl.us/fmsupportapps/WorkProgram/WorkProgram.aspx).


Appendix B: Roadway Funding



Table 20. Local Option Gas Tax Funding, FY 2005-FY 2017

Airport Rd (Summertrees Rd to Taylor Rd) $98,561

Airport Rd at Sunshine Blvd (Intersection) $84,969

Clyde Morris Blvd (Aberdeen to Hand Ave) $802,819

Clyde Morris Blvd (LPGA Blvd to Aberdeen) $5,860,100

CR 415 (SR44 to US 92) $281,052

DeBary Ave Bypass (I-4 to Providence) $3,261,687

Dunn Ave (CR 415 to Williamson Blvd) $165,755

Enterprise Road (Saxon Blvd to Deltona Blvd) $2,766,617

Hamilton Ave Ext (Fatio Rd to Minnesota Ave) Study $197,694

Howland Blvd (Deltona High School to Providence Blvd) $202,864

Kepler Rd at SR 44 (Intersection study) $17,111

LPGA Blvd (Jimmy Ann Dr to Nova Rd) $7,375,678

Minnesota Ave (Hazen Rd to SR 15A) $7,623

Old Mission Rd (Park Ave to Josephine St) Study $38,840

Rhode Island Ext (University High School to US 17-92) $1,318,276

S. Williamson Blvd Ext $1,352,947

Saxon Blvd (Enterprise Rd to I-4) $98,942

Saxon Blvd (Sumatra Ave to Tivoli Dr) $2,456,033

SR 472 Howland Blvd Interchange $624,992

Taylor Rd (Forest Preserve Blvd to Summertrees Rd) $47,208

Tymber Creek Rd (SR 40 to Peruvian Way) $1,844,998

Westside Pkwy (Saxon Blvd Ext to SR 415) Study $15,072

Williamson Blvd (Dunn Ave to LPGA Blvd) $950,363

Total New LOGT Expenditures, FY 2004/05-FY 2016/17 $29,870,201

÷Number of Years 13

Annual New LOGT Expenditures $2,297,708 Source: Volusia County Construction Engineering, September 11, 2018.




APPENDIX C: FLORIDA IMPACT FEE ACT

The 2006 Florida Legislature passed Senate Bill 1194, which established certain requirements for impact fees in Florida. The bill, which became effective on June 14, 2006, created a new Section 163.31801, Florida Statutes, which currently reads as follows: 163.31801 Impact fees; short title; intent; definitions; ordinances levying impact fees.--

(1) This section may be cited as the “Florida Impact Fee Act.” (2) The Legislature finds that impact fees are an important source of revenue for a local government to use in funding the infrastructure necessitated by new growth. The Legislature further finds that impact fees are an outgrowth of the home rule power of a local government to provide certain services within its jurisdiction. Due to the growth of impact fee collections and local governments’ reliance on impact fees, it is the intent of the Legislature to ensure that, when a county or municipality adopts an impact fee by ordinance or a special district adopts an impact fee by resolution, the governing authority complies with this section. (3) An impact fee adopted by ordinance of a county or municipality or by resolution of a special district must, at minimum: (a) Require that the calculation of the impact fee be based on the most recent and localized data. (b) Provide for accounting and reporting of impact fee collections and expenditures. If a local governmental entity imposes an impact fee to address its infrastructure needs, the entity shall account for the revenues and expenditures of such impact fee in a separate accounting fund. (c) Limit administrative charges for the collection of impact fees to actual costs. (d) Require that notice be provided no less than 90 days before the effective date of an ordinance or resolution imposing a new or increased impact fee. A county or municipality is not required to wait 90 days to decrease, suspend, or eliminate an impact fee. (4) Audits of financial statements of local governmental entities and district school boards which are performed by a certified public accountant pursuant to s. 218.39 and submitted to the Auditor General must include an affidavit signed by the chief financial officer of the local governmental entity or district school board stating that the local governmental entity or district school board has complied with this section. (5) In any action challenging an impact fee, the government has the burden of proving by a preponderance of the evidence that the imposition or amount of the fee meets the requirements of state legal precedent or this section. The court may not use a deferential standard.




APPENDIX D: STUDY COMPARISONS

This appendix provides comparisons between inputs and calculations for this study, the study that was prepared in 2007 by Tindale-Oliver and Associates, and the preliminary September 2016 draft of this study submitted for staff review. The basic fee calculation in all these reports is the net cost per vehicle-mile of travel (VMT) times the VMT generated by a unit of development.

Comparison of 2007 and 2018 Studies

Table 21 presents a comparison between this study and the 2007 study, using a few major land use categories as examples. The 2018 fees are lower primarily because of lower cost per vehicle-mile of travel (VMT), although lower VMT generation rates are a major contributing factor for nonresidential land uses. Lower credits counterbalanced the lower cost per VMT, but only slightly. Cost per VMT is the biggest factor, and it is lower in the 2018 study due to the combination of lower cost per lane-mile and more capacity per lane.

Table 21. Comparison to 2007 Study

2007 2018 Percent

Study Study Change

Cost/VMT

Cost/Lane-Mile $4,310,545 $3,704,399 -14%

÷ Avg. Capacity/Lane 8,233 12,431 51%

Cost/VMT $524 $298 -43%

– Credit/VMT -$66 -$18 -73%

Net Cost/VMT $458 $280 -39%

VMT/Unit

Single-Family 15.24 18.65 22%

Retail 31.82 22.14 -30%

Office 21.90 13.78 -37%

Industrial 10.49 7.01 -33%

Fee/Unit*

Single-Family $6,991 $5,222 -25%

Retail $14,826 $6,199 -58%

Office $10,026 $3,858 -62%

Industrial $4,945 $1,963 -60% * does not included the 3% administration fee

Source: 2007 study data from Tindale-Oliver & Associates, Inc., Volusia

County Parks & Recreation, Fire Rescue Services, and Transportation

Impact Fee Update Study, November 6, 2007; 2018 study data from Table

12 (cost per lane-mile), Table 13 (cost per VMT), Table 16 (credit per VMT),

Table 9 (VMT per unit), and Table 17 (fee per unit).

One reason the 2018 cost per lane-mile may be lower is that it is based only on County road projects, whereas the 2007 study included State road improvement costs and computed a weighted average cost using the distribution of lane-miles.


Appendix D: Study Comparisons



The average capacity per lane-mile is not calculated in this study, but it can be inferred as the ratio of the cost per lane-mile to the cost per VMT. However, unlike the 2007 average capacity, it is not based on all roadways, but rather on the list of recent and planned major roadway segment improvements used to determine average cost per lane-mile. The weighted average capacity per lane derived from the current major road inventory is 8,354 daily vehicles – very close to the figure used in the 2007 study. However, most of the improvements the County makes are widening projects, which add more capacity per lane than new roads. The approach used in this update takes this into account, and provides a direct link between specific improvement costs and the capacity added by those improvements.

Comparison of 2016 and 2018 Drafts

A comparison between this study and the preliminary draft prepared in September 2016 for review by County staff is shown in Table 22 below. Because of the time that has elapsed, it was necessary to update all the study inputs, including the existing major road inventory, project costs and capacities, revenue credits, and travel demand factors (average trip rates, percent new trips and trip lengths). As noted above, the basic formula is net cost per VMT times VMT generated. The higher net cost per VMT in the current draft is more than offset by the lower VMT per development unit, resulting in maximum fees that are 16-53% lower than what was in the 2016 draft for major land use categories.

Table 22. Comparison to 2016 Draft

2016 2018 Percent

Draft Study Change

Cost/VMT

Cost/Lane-Mile $2,379,638 $3,704,399 56%

÷ Avg. Capacity/Lane 9,117 12,431 36%

Cost/VMT $261 $298 14%

– Credit/VMT -$50 -$18 -64%

Net Cost/VMT $211 $280 33%

Total Existing VMT 9,925,660 5,686,467 -43%

Total Centerline Miles 763.86 541.54 -29%

VMT/Unit

Single-Family 29.42 18.65 -37%

Retail 37.93 22.14 -42%

Office 31.79 13.78 -57%

Industrial 19.70 7.01 -64%

Fee/Unit*

Single-Family $6,208 $5,222 -16%

Retail $8,003 $6,199 -23%

Office $6,708 $3,858 -42%

Industrial $4,157 $1,963 -53% * does not included the 3% administration fee

Source: 2016 draft data from Duncan Associates, Road Impact Fee Study,

revised staff review draft, September 2016; 2018 study data from Table

18 (VMT and centerline miles) and Table 21 (other data).


Appendix D: Study Comparisons



The 33% increase in the net cost per VMT in the current draft is about equally due to the higher cost per VMT and the lower credit per VMT. The 2018 cost per VMT is based on a revised list of improvements that has been thoroughly vetted by County staff to include only capacity-expanding improvements to the major roadway system and all relevant costs (including right-of-way, design, construction, and CIE), and to exclude projects where full costs are not available. The reduction in the revenue credit per VMT reflects both more recent funding patterns as well as the removal of expenditures for non-thoroughfare and non-capacity improvements. More than offsetting the increase in net cost per VMT is the 43% decrease in total VMT on the thoroughfare system. Because the travel demand factors by land use are calibrated so that expected VMT equals actual VMT, the reduction in the estimate of actual VMT results in a proportionate reduction in the calculated maximum fees. There are two reasons for the dramatic decline in total VMT. The biggest change was the consultant’s correction of a systemic error found in the existing major road inventory spreadsheet. The VMT for each road segment was being calculated as daily volume divided by miles, rather than daily volume times miles. The magnitude of the effect of this error on total VMT is revealed by a comparison using the current updated inventory (which has been winnowed of minor collector roads and otherwise corrected and updated from the 2016 version). Putting the error into the revised, updated inventory spreadsheet would increase the estimate of total VMT from 5.7 million to 8.7 million. Correcting the error would be a reduction of 35%, which is the largest factor in the 43% reduction in total VMT from the 2016 draft. The remainder of the decline in total VMT between drafts was due to the removal of collector roads that do not provide regional connectivity based on engineering guidelines. Other road segments that were either municipal roads or outside the county’s boundary were also removed, so that the revised inventory accurately reflects the existing County/State thoroughfare system in Volusia County. The collectors excluded from the updated inventory primarily serve a localized area, are often built by developers, and seldom require capacity expansion. This culling from the preliminary inventory is evidenced by the 29% reduction in centerline miles. The reduction in miles has a much less dramatic effect on VMT, however, because the bulk of the excluded roads tend to be low-volume corridors. The more regional-serving collectors retained in the updated inventory, for example, represent 44% of centerline miles but only 16% of VMT. In sum, the reduction in calculated maximum fees from the 2016 preliminary draft to this study is primarily due to correcting an error in the major roadway inventory spreadsheet that significantly over-estimated existing VMT. The removal of smaller collectors, roads outside the county, and municipal roads was also a contributing factor.


Documents

Road Impact Fee Study - Volusia County, Florida · The recent history of the County’s road impact fees is summarized as follows. 1999 – The last comprehensive study of the road